CIHM 
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ICI\/tH 

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Oc..  ..  jian  Institute  for  Historical  Microreproducticns  /  Institut  canadien  de  microreproductions  historiques 


Technical  and  Bibliographic  Notes  /  Notes  techniques  et  bibliographiques 


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L'exemplaire  film*  fut  reproduit  grace  d  la 
g^n^rositA  de: 

Bibliotheque  nationale  du  Canada 


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de  la  nettet*  de  I'exemplaire  film*,  et  en 
conformit*  avec  les  conditions  du  contrat  de 
filmage. 

Lea  exemplaires  originaux  dont  la  couverture  en 
pep.er  est  imprimAe  sent  filmis  en  commencant 
par  le  premier  plat  et  en  terminant  soit  par  la 
derniire  page  qui  comporte  une  empreinte 
d  impression  ou  d-iiiustration,  soit  par  le  second 
plat,  selon  le  cas.  Tous  les  autres  exemplaires 
origiriaux  sont  film*s  en  commenpant  par  la 
premiire  page  qui  comporte  une  empreinte 
a'impression  ou  d'illustration  et  en  terminant  par 
la  derniAre  page  qui  comporte  une  telle 
empreinte. 

Un  des  symboles  suivants  apparaltra  sur  la 
derniire  image  de  cheque  microfiche,  selon  le 
cas:  le  symbole  — *■  signifie  "A  SUIVRE"   le 
symbole  V  signifie   "FIN". 

Les  cartes,  planches,  tableaux,  etc.,  peuvent  etre 
filmis  A  des  taux  da  reduction  diffirents. 
Lorsque  le  document  est  trop  grand  pour  etre 
reproduit  en  un  seul  clich*.  il  est  film6  i  partir 
de  I'angle  supirieur  gauche,  de  gauche  A  droite. 
et  de  haul  en  bas,  en  prenant  le  nombre 
d'images  nicessaire.  Les  diagrammes  suivants 
illustrent  la  mithode. 


MICROCOPy    RESOLUTION    TEST    CHART 

ANSI  ond  ISO  TEST  CHART  No    2 


1.0 


I.I 


;-  ilia 


III— 

II  2.2 
I  2.0 

1.8 


1-25   III  1.4     mil  1.6 


_J  -APPLIED  IfWIGE     Inc 

^1  ■      '■    tijs(    Mam    ilfffft 

r.^  -esief.  t«ffw   Yofk         146U9       US* 

■^=  6)    482  -  0300  -  Phon» 

^=  ■  ■'   ■■    -''SB   -  ".989   -   f  3. 


Q\rncgie  Endowment  for  International  Peace 

OIVISION    OF    ECONOMICS    AND    HISTORY 
JOHN    BATES   CLARK.    DIRECTOR 


PRELIMINARY  ECONOMIC  STUDIES  OF  THE  WAR 


(niTtn  BY 

DAVID  KINLEY 

Pri>fp-«or  of   Politual    Rronomy,  Univenity  of  lUinoif 
MfmU-r  uf  Committee  nf  Keaearrh  uf  the  Endowment 


GOVERNMENT  CONTROL  OF  THE  LIQUOR 

BUSINESS  IN  GREAT  BRITAIN  AND 

THE  UNITED  STATES 

•Y 

THOMAS  NIXON  CARVER 

Professor  of  Political  Economy,  Harvard  University 


NEW   YORK 

OXFORD  UNIVERSITY  PRESS 

AMERICAN   BRANCH:    35    WEST   32Nn   STREET 

LONDON,  TORONTO,  MELBOURNE  AND  BOMBAY 
1919 


( OI'VKICHT   I'M') 

HY   THK 

CARNEGir    FNnOWMFNT    I  <  iR     INTi- RNATIOSAI.    I'EACK 


UBL19MEHS    PHlNTtNfS    COMPANY 


EDITOR'S    PREFACE 

This  study  on  the  "( i..\  iTiiiiiciit  (  nntr..l  <>(  tlie  I-iquor  Traffic" 
was  Ix'Kun  by  Dr.  larvcr  uitli  ilu-  ixiuctati.^n  that  the  history  ,,f 
the  ixperii-iue  of  (ircat  iiritain  would  he  useful  to  our  own 
I)eo|,le  during  the  war.  l?ut  events  have  moved  so  rapidly  that 
tiii^  purjioM-  has  luen  defeated. 

The  original  motive  for  control  of  the  liquor  traffic  as  a  war 
measure  was  the  conservation  of  food  materials.  The  prohibi- 
tion movement  had  made  ^reat  strides  in  this  country  for  other 
reasons  than  conservation  of  fo,,<I,  but  the  movement  was  jjreatly 
accelerated  i.v  this  later  need.  Moreover,  the  .restriction  on  the 
consuminion  of  li,|uor  abn.ad  had  shown  such  -ood  results  in 
improved  health,  morale  and  econonu'c  condition--  that  the  arj^u- 
"unt  f,,r  prohibi;i(,n  was  strengthened.  It  is  not  alto.tjether 
unlikely  that  the  adoption  of  our  own  constitutional  amendment 
on  this  m.atter  would  have  been  more  dirticult,  or.  at  any  rate. 
lonj,'er  delayed,  hut  for  the  patriotic  feelinj^  that  conservati,,n 
was  necessarv. 

It  is  of  little  practical  advantage  to  discuss  the  causes  of  a 
movement  and  its  underlying  philosophy,  after  the  event.  How- 
ever, it  has  been  made  very  clear,  by  the  experience  of  ever, 
country  in  the  war,  that  the  manufacture  of  malt  and  s{,iritu..us 
liquors  has  been  a  heavy  drain  on  the  national  strength,  n..t  only 
by  the  divergence  of  food  materials  to  this  manufacture  but  by 
tiie  demoralization  of  large  numbers  of  men  and  women.  The 
hastening  of  whatever  good  one  believes  to  inhere  in  the  prohi- 
huion  of  the  consumption  of  these  Ii(iuors  is,  therefore,  to  be 
regarded  by  those  who  hold  that  view  as  an  incidental  "benefit 
of  the  war. 


KUrmU  S   I'KKKACK 


Si'iiu-  llinuKlittuI  ^tiukiit^  lit  ptililir  ;itfair>  li.ivi-  (Imiht^  nf  tlic 
pclitii-al  wimIi.iu  (i|   tlic  nu-tlii'd  .ulcptal  liy  <nir  own  people  to 
j.l(.p  till-  tn.iiimactiirc  and  coiisiiiiiptioii  of  liijuor.     A  constitu- 
ti"iia!  amcinlnunt  wliiili  i>  in  its  diaractcr  virtually  .1  piece  of 
special  le^'islation  is  a  so"ie\vliat  ilanj,'crous  inetho(l,  politically, 
in  a  democratic  repulilic.      Tiie  Constitution  is  a  declaration  of 
fundamental  princijiles  <  n  the  basis  of  which  laws  rest.     The 
proliihitory   amendment   is   not   a   declaration   of   principle,   hut 
ratiier  it-elf  a  leui-lativc  enactment.     It  is  not  a  sutTicicnt  reply 
to  ^ay  that  the  jiurpi'se  and  result  of  the  amendment  are  both 
f;o(.d,  for  tlie  pi  Milt  1-  tliat  it  the  process  of  amending  the  Consti- 
tution can  he  utilized  to  enact  a  law  that  is  rej;arded  as  generally 
),'iH,d,  it  can  tie  utilized  al-o  for  purjxises  that  are  sinister;  and 
if  tliose  [uiriio-es  are  accomplished  their  evil  influence   wdl   he 
prolon;,'ed  hecau-e  of  tlie  slowness  of  the  process  of  amending 
tile  Constitution.     Hut  the  ma>s  of  men  i)ay  little  attention  to 
political  principles  involved  in  a  movement  whose  purposes  they 
are   iletermincd   to  attain.      In   other   words,   we   seldom   think 
about,   and    still   nvre   seldom  .[)erceive,    the   unintended   conse- 
iHKiKi--   iiivi lived-  in   particular   IcKislation.      In   tlii>   ca>e,    such 
experience  as  the  world  has  had  fjoes  very  clearly  to  show  that 
human  efficiency  is  increased  by  the  curtailment  of  li(iuor  con- 
sumption and  that  the  wipinj;  out  of  die  evils  of  liriuor  trafific 
niean>   a   tremendous   social    improvement    in    many   directions. 
A>  to  the  ])olitical  conse<|uences  of  our  own  method  of  securing 
this  gain  only  experience  can  satisfy  us. 

Needless  to  -a v.    Professor  Carver  has  handled   this  subject 
with  his  usual  skill  and  lucidity. 

David  Kixley, 

Editor. 

L'rbana.  lllinnis, 
.\t)ril  30,  1919. 


T 


CONTENTS 

PACF 

Introduction 3 

I'akt  I     (Ikeat  Bkitain 

CHAPTER 

I.     The  Drink  Situation  at  tiie  HcKinnin^,'  of  the  War  .  17 

II      The  Attitude  of  the  I'uhlic 40 

III.     What  Was  Done  by  the  <  iovernnu:,!— The   Kepression 

of  Drunkenness 53 

I\'.     What  Was  Done  hy  the  (ioverntncnt  -The  Conserva- 
tion of  Food  Materials 91 

V.     Results 107 

Part  II— Tiii-;  L'ntted  States 

\T.     Why  America  Tends  Toward  IVohibitioii  Rather  than 

Control 139 

\TI.     The  Repression  of   Drunkenness 152 

\  III.     The  Conservation  of    Food   Materials 16^) 

IX.     The  Agitation  for  Permanent  Prohibition   ....  176 

X.     Conclusion 181 

References 185 


:«•---■, 


GOVERNMENT  CONTROL  OF  THE   LIQUOR 

BUSINESS    IN   GREAT   BRITAIN    AND 

THE    UNITED    STATES 


INTRODUCTION 

"Make  Iiay  before  the  sun  sliincs"  seems  to  be  the  motto  of 
all  war  time  profiteers,  whether  in  the  field  of  business',  of  poli- 
tics, of  literature  or  of  social  reform.  Decent  reformers,  how- 
ever, by  a  tacit  understanding,',  ail  declared  a  truce  when  the  war 
came  on.  They  felt  that,  however  meritorious  their  reforms 
mij^ht  be,  It  would  he  criminal  in  war  time  to  di<sip;,te  their 
own  enerpy.  or  distract  that  of  other  people,  from  the  Rreit 
task  of  wmnins  the  war.  They  saw  that  this  w.nild  he  the 
result  of  a^itatin^r  any  controverted  questions  which  did  not 
cmtrihute  directly  to  militarv  victory. 

Temperance  reform,  however,  is' unique  among  reforms  in 
at  least  two  respects.  In  the  first  place,  its  active  promoters 
have  nothins:  to  Rain  from  its  success.  In  ..le  second  place,  it 
has  a  very  direct  hearin-  on  the  conservation  (,f  man  p<jwer  and 
of  food,  and  on  the  chances  of  military  victory. 

The  latter  is  by  far  the  most  important  factor  in  the  increase 
"t  public  interest  in  the  drink  (juestion  in  war  time  Fvai 
though  temperance  reformers  have  nothing  to  gain  from  the 
success  of  their  reform,  and  couKl  not  be  calle.l  political  or 
social  profiteers,  nevertheless  temperance  ref.,rm  is  a  contro- 
verted question  and  its  continueil  agitation  in  war  time  would 
dissipate  energy  which  is  x  .tally  needed  for  the  prosecution  of 
the  war.  P,ut  it  did  not  require  a  temperance  reformer  to  see 
that  <lrunkenness  on  a  large  scale  in  war  time.  e.specially  among 
munition  workers,  train  men  and  sailors,  to  sav  nothin-  of 
soldiers  and  officers,  constituted  a  real  menace.  "As  a  matter 
of  fact,  if  was  not  the  chrom-c  temperance  reformer  who  did 
nio»t  to  arouse  public  sentiment  in  all  the  warring  countries 

J 


GO\EKNMENT    fO-NTKUI.    OF    THE    l.iyiOK    lil  .S1.\E^<S 


to  the  dan>,'crs  of  the  drink  evil  in  war  time.  The  mihtary  and 
naval  aiitliorities  who  were  in  positions  of  terrific  responsibihty, 
in  whose  keepin.i^  rested  the  hves  of  milHons  of  people,  would 
have  r)eer.  stupid  imieed  if  they  had  not  seen  the  danj,'er  and 
warned  their  people  a),'ainst  if.  Rulers  and  law  makers  who 
stood  as  the  spokesmen  of  masses  of  [K'ople  would  have  been 
dumb  mouthpieces  indeed  if  they  had  not  voiced  the  general 
alarm  over  the  dan),'er  of  drunkenness  on  the  part  of  men  upon 
whom  the  armies  and  the  people  depended  for  accurate  and 
efficient  work. 

Whatever  may  have  been  said  in  extenuation  of  drunkenness 
in  times  of  peace,  there  foulj  be  no  reascmable  doubt  that  in 
time  of  war  it  was  a  so-.-rce  of  grave  danger.  Overstimula- 
tion undoubtedly  tends  tempo-arily  to  destroy  reliability,  and 
reliability  in  a  time  of  crisis  is  of  the  utmost  importance.  In 
the  armies  it  is  absolutely  essential  that  officers  should  be  able 
to  relv  upon  their  nun  and  the  men  upon  their  officers  and  upon 
one  another.  But  if  an  oflicer  is  drunk  or  liable  to  be  drunk, 
men  can  not  relv  upon  bin.  or  have  confidence  in  him.  Neither 
can  men  relv  upon  their  comrades  who  are  liable  to  be  drunk. 

Rut  this  dependableness  is  essential  not  only  among  the  fight- 
ing men,  but  throughout  tlie  wliole  nation.  The  soldiers  must 
be  al)le  to  relv  upon  the  munition  makers  and  the  munition 
makers  upon  one  another.  One  drunk  man  in  a  munition  plant 
might  endanger  the  lives  of  thousands  of  workers,  besides  leav- 
ing the  soldiers  inade(iuately  supplied.  And  so  on,  throughout 
the  whole  nation  in  war  time,  we  are  in  a  state  of  dependence 
upon  one  another,  but  there  can  be  no  dependence  where  there 
is  no  depentlableiiess  or  relial)ility.  Without  dependableness  or 
reliabilitv,  our  whole  military  system  crumbles  into  a  mass  of 
indiviiluals  without  coherence,  organization,  or  team  work. 

Even  in  time  of  peace,  in  our  interlocking  civilization,  there 
is  no  vice  worse  than  drurkenness.  Whatever  may  have  been 
true  in  a  simple,  unorganized  rural  life,  it  is  now  true  that  we 
are  verv  much  dependent  upon  one  another.  The  interdepend- 
ence of  parts  is  a  characteristic  cf  every  highly  civilized  society 


INTROnUCTlON 


as  it  is  of  every  highly  develdped  organism  and  of  every  liiglily 
efficient  machine.  Hut  there  can  be  no  interdependence  of  parts, 
and  licnce  no  high  civilization,  where  there  is  no  dependableness. 
Nothing  so  quickly  or  so  effectively  destroys  dependableness  as 
overstimulation. 

It  was  the  question  of  drunkenness  rather  than  the  question 
of  drink  per  sc  which  first  aroused  public  interest  in  drink  con-' 
trol  as  a  war  measure.  In  the  early  stages  of  the  war,  public 
efforts  were  directed  pi-imarily  toward  the  control  of  drunken- 
ness rather  than  toward  the  elimination  of  drink;  but  the  two 
questions  could  not  be  kept  separate.  Some  control  of  drink 
seemed  absolutely  necessary  to  any  cnntml  whatever  over  drunk- 
enness. Something  might  be  said,  of  cout.-;e,  on  academic 
grf)unds,  in  favor  of  dealing  so  severely  with  every  case  of 
drunkenness  as  either  to  reform  <ir  to  exterminate  all  drunkards. 
P.y  this  method  the  question  of  drunkenness  could  be  kept  apart 
from  the  question  of  drink.  Rut  no  civilized  country  could  be 
induceil  to  deal  so  harslily  and  implacably  with  drunkenness  as 
that,  even  in  time  of  peace,  much  less  in  time  of  war,  when  every 
ounce  of  man  power  is  needed.  The  only  other  possibility  seems 
to  be  to  reduce  the  temptations  and  the  opportunities  for  ex- 
cessive ilrinking.  This  recjuires  some  control  of  the  drink  trade, 
and  this  mixes  the  two  questions.  There  does  not  seem  to  be 
any  other  practicable  way  of  eliminating  the  menace  of  drunk- 
enness. Certainly  there  was  no  other  way  which  would  bring 
results  quickly  enough  to  meet  the  exig:>ncies  of  a  life  and  death 
struggle. 

Even  the  argument  that  the  freedom  to  drink,  together  with 
the  impl.icable  punishment  of  drunkennes';,  mav,  when  combined, 
<li>  the  be.ieficent  work  of  the  fool  killer  loses  much  of  its  force 
in  war  time.  The  fool  killer  does  its  work  slowly  and  can  only 
rid  the  country  of  fools  after  several  generations  of  continued 
operation.  A  great  war,  however,  presents  a  crisis  in  the  imme- 
diate present  which  will  not  wait.  Drunkenness  must  be  stopped 
promptly  and  not'by  the  slo\y  proce»  of  natural  selection:  other- 
wise the  country  may  suffer  an  irreparable  disaster.     This  neces- 


(■.(i\  r.KN.Mi;N  r  c  ontkoi.  ov  tiik  i.ioihk  iusinkss 


sarily  means  n  pulicv  i>i  |)n.\  tntiii.tj  iiirn  fnnii  j:jcttinp  drunk 
ratlier  than  a  policy  of  rffi.rniini;  or  i'.\icmiinalin,<,'  (Irunkanis. 
St<>ppa},'(.'  at  the  sdurcc  mro^itatcs  ikalinf;  with  the  (juestion  (if 
drink  and  the  ([uestion  of  drunkenness  as  parts  of  the  same 
fiiihcy. 

Tliat  drunkenness  is  one  of  tiie  wcirst  and  most  dangerous, 
if  not  the  \\(ir>t  and  most  dan^'erous.  of  all  vices,  mav  he  dis- 
puted hy  sentimental  moralist>,  hul  it  is  not  likely  to  be  disputed 
by  any  <ine  who  i>  in  the  habit  of  thinkin.y;  about  such  thinj,'s  in 
concrete  terms.  If  such  a  jktsou  were  j,nven  his  choice  between 
servin,tj  as  a  soldier  under  an  officer  who  was  aiUlicted  to  drunk- 
cnne.-s  and  under  one  who  was  addicted  to  any  otlier  vice,  he 
would  probably  not  choose  to  serve  under  the  drunkard.  It 
would  be  a  gruesome  story,  if  it  coidd  be  written,  which  would 
reveal  how  many  blunders,  like  that  which  sent  the  Li,i,dil  I'.ri- 
gade  into  the  \alley  (jf  Death,  were  caused  by  the  excessive 
use  of  alcohol  on  the  part  of  some  officer.  If  one  who  professes 
to  jjelieve  that  there  are  worse  vices  than  drunkenness  were 
given  his  choice  between  tra\elin,i,f  on  a  ship  in  the  submarine 
zone  under  a  captain  who  was  in  the  habit  of  excessive  drink- 
ins,'  ami  under  a  captain  who  was  guiltv  of  any  other  vice  what- 
soever, he  would  probably  not  choo.,e  the  heavy  drinking  captain. 
But  every  member  of  the  crew  of  a  ship  in  the  submarine  zr'iie 
is  also  in  a  position  of  great  responsibility,  and  a  vice  which 
destroys  his  de()end,'ibleness  is  more  ilangerous  than  anv  other 
vice. 

Even  in  civil  life  and  in  times  of  peace,  in  our  interlocking 
civilization,  we  should  make  similar  choices  if  faced  with  similar 
alternatives.  If  given  our  choice  between  having  abroad  in  the 
community  locomotive  i  iigineers.  drug  clerks,  chauffeurs,  phv- 
sicirms,  or  even  bank  cashiers  who  were  addicted  to  drunken- 
ness, and  having  men  in  >imil;irly  responsible  positions  who  were 
addicted  t(^  any  other  \  ice,  we  sbould  jirobably,  with  considera- 
ble unanimity,  decide  against  having  drunkards  in  these  posi- 
tions. In  war  time,  es]ieci,-dly,  drunkenness  is  intolerable  in 
any  one.     The  general  appreci.ation  of  this  f;ict  has  stirred  .all 


INTKODUCTION  7 

tlie  warring  countries  to  special  efforts  for  the  repression  of 
drunkenness. 

In  several  of  the  warring  countries  the  food  situation  became 
acute  either  at  the  beginning  of  the  war  or  soon  after.  In  these 
cases  tile  (|uesti(in  <<{  food  conservation  rivaled  in  importance 
tiiat  lit  tiie  conservation  of  human  energy.  Accordingly,  some  re- 
strictions uixin  the  Use  of  food  materials  in  the  manufacture  of 
potable  alci)hi>I  became  necessary.  In  most  cases,  luiwever,  the 
two  niiitives  were  mixed.  It  is  not  always  easy  to  tell  whether  the 
desire  to  conserve  lood  materials  through  the  restriction  of  Ijrew- 
ing  and  di.-tilling  was  the  domin.int  •  itive.  Aiistria-Mungary 
in  !he  first  year  of  the  war  limited  tlie  hours  of  sale  on  ordinary 
days  from  9  a.m.  to  5  p.m.  and  on  Sundays  and  holidays  shops 
in  which  liquors  were  sold  were  closed.' 

In  Germany  various  restrictions  and  prohibitions  were  placed 
upon  the  sale  i/f  spirituous  li(|uors  to  soldiers  in  special  localities. 
The  following  is  a  sample: 

Reichsanzeiger  No.  39.    February  16,  1915.= 

The  General  CDmmandinp  in  the- Marks  lias  issued  the   following  notice: 

The   numerous   warnings   and   notices   issued   by  the   authorities   and   tlie 

press   not   having  had   the  necessary   results.   I   hereby  ordain   by   virtue  of 

paragraph  91)  of  the  law  concerning  a  state  of  siege  dated  June  4.  1851,  for 

the  district  and  the  town  of  Berlin  and  the  province  of  Brandenburg: 

It  is  forI)idden  for  keepers  of  licensed  houses  to  serve  alcohol  in  the  form 
of  spirits,  liiiueur'-,,  rum.  arrak.  cognac  or  drinks  prepared  from  them  to  sol- 
diers of  all  ranks  in  uniform,  either  in  person  or  through  the  medium  of 
others. 

This  ordinance  shall  enter  into  force  on  Friday.  February  19.  1915. 
Contraventions  will  be  punishable  by  a  term  of  imprisonment  not  e.xceed- 
ing  one  year  or  by  the  closure  of  the  establishment. 

The  Commander  in  Chief  of  the  Marken, 

\"oN'  Kessel. 


On  Alarch  26,  1915,  the  Federal  Council  empowered  the  local 
authorities  to  restrict  or  prohibit  the  sale  of  spirits. 

'  See  Inli'xicating  Liquors  (Restrieiions  in  Foreign  Countries  during  the 
War).  Correspondence  Relative  to  the  Measures  Taken  in  Certain  Foreign 
Countries  for  the  Restrictions  of  the  Sale  of  Intoxicating  Liquors  Since  the 
Outbreak  of  the  War,     London,   1915.     Page  3. 

-  Ibid.,  page  5. 


o  r      •:rnmk\t  cdntkoi.  ok  im-   i.ioi dk    imsinkss 

NOTIFICAI'IOX    I.\    REGARn    TO    THF    Sl  ri'I.V    AM)    SAI.I'    ol" 
Sf'lRITS   AM)  ALCOHOL   (SriRITlS)   OF   .\L\RCH  2b.   I9L^  ■ 

III  view  of  Section  3  of  the  law  of  4th  Aiii;ii-.t.  1914,  empowering  the 
Federal  Council  to  adopt  economic  measures,  tlie  Federal  Council  have  issued 
the  f(i!liiw  ing  decree  : 

L 

The  Provincial  Authorities  ( Lanileszentrall.cli.'.rde )  or  the  authorities 
indicateil  liy  them  may  prohibit,  either  who'ly  ..r  partially,  or  restrKt.  the 
supply  and  sale  of  spirits  or  alcohol  ("spiritus" )  ;  they  may  also  issue  renn- 
latioi-s  in  regard  to  the  size  and  nature  of  casks  and  hottles  used  for  -uch 
supidy  and  sale,  and  fix  minimum  prices. 


^^  Placfs^  used  exclusively  for  the  supply  and  sale  of  spirits  and  alcohol 
("spiritus")  must  he  kept  shut  during  the  perin.N  within  which  supplv  and 
sale  is  prohibited  under  Section  \.  Places  which'  are  principally  used  for 
such  supply  and  sale  may  be  closed  by  order  of  the  police  authorities  during 
the   prohibited   period. 

3. 

.\n>-  pers,,n  acting  in  contravention  of  the  provision  contained  in  Section 
2,  sentence  1.  or  of  regirlations  enacted  in  virtue  of  Section  1,  sentence  2. 
will  be  puru'shed  with  imprisonment  not  exceeding  one  year  or  with  a  fine 
not  exceeding  10,000  marks. 

4. 

Should  owners  or  managers  of  places  for  such  supply  and  sale  pmve 
unreliable  in  the  performance  of  the  duties  imposed  upon  them  by  this 
decree  and  the  regulations  issued  in  connection  therewith,  the  police  author- 
ities may  close  the  business  and  seize  the  stocks. 

S. 

.Appeal  may  be  made  against  orders  issued  b;,  the  Police*  Authorities 
(Sections  2  and  4).  but  such  appeal  has  no  suspensory  action.  The  super- 
vising authorities  decide  on  the  appeal. 

6. 

The  provincial  authorities  decide  as  to  who  are  to  be  regarded  as  police 
authorities  in  the  sense  of  this  decree. 


7. 

This  decree  comes  into   force  on  the  day  of   its   promulgation.     The  Im- 
perial Chancellor  decides  when  it  shall  cease  to  have  effect 

The  Refrescntative  of  the  Imperial  Chancellor 
Berlin.  26th  March.  191S.  DE,.BRurK. 

^httoxicalmg  LuvAors  (Restrictions,  etc.)  cited  above,  page  6. 


INTROULCTIO.V  9 

On  Marcli  31  the  Federal  Council  place  1  very  drastic  restric- 
tions upon  the  prcjtluction  of  spirituous  litjuors,  forbidding  any 
one  to  produce  brandy  who  was  nut  in  the  business  during  the 
financial  year  1913-14,  and  even  Ak  latter  were  forbidden  to 
[)ut  on  tlie  market  in  an\  month  more  than  2  per  cent  of  the 
quantity  for  which  they  paid  duty  during  the  year  1913-14. 

NOTIIICATIOX    RF.LATIVF,  TO   THE  RESTRICTION'   Ol"   THE 
PROUUCT'OX    (JE   BRAXDV 

March  31,  191?  > 
By  virtue  of  Section  3  nt  the  law  of  August  4,  1914,  as  to  the  autlmnty 
of  the  I'ederal  Council  to  adopt  economic  measures   (Imperial  Law  Oa:ctle, 
page  327  >,  the  Council  has  issued  the  following  decree: 

1. 

Frnm  April  2,  1915,  until  further  notice,  no  raw  hrandy  may  be  put  on 
the  market  alter  pa>ment  of  the  consumption   of   spirits   duty. 


The  Imperial  Chancellor  is  empowered  to  grant  anew,  from  May  1,  1915. 
permission  to  place  raw  brandy  on  the  market  on  payment  of  the  con  uinp- 
tion  of   spirits  duty. 

In  that  case  only  those  pcrscins  may  put  raw  brandy  on  the  market  who 
were  engaged  in  that  trade  in  the  financial  year  1913-14  and,  according  t'l 
the  Imperial  Chancellor's  decision,  this  may  be  done  each  month  up  to  J 
lier  cent  of  the  quantity  for  which  they  paid  duty  in  the  financial  year 
1913-14, 

3. 

The  brandy  which  has  t>een  placed  in  store  and  there  diluted  with  water 
subsequently  to  April  1.  1915,  or  purified  by  filtration  through  charcoal 
(Brandy  Stores  Ordinance,  Section  19)  is  assimilated  to  raw  brandy  of  Sec- 
tions 1  and  2. 

Reception  of  goods  in  a  store  in  accordance  with  the  provisions  of  Sec- 
tion 36  of  the  Brandy  Stores  Ordinance  is  made  eciuivalent  to  placing  them 
on  the  market  after  payment  of  the  duties  on  the  consumption  of  spirits 
(Sections  1  and  2). 

4. 

The  Imperial  Chancellor  issues  the  regulations  with  regard  to  the  (Exe- 
cution of  the  law.     He  may  authorize  exceptions. 


Anyone  who  wilfully  violates  the  prescriptions  of  Sections  1.  2,   Par.  2, 
and  of  Section  3,  is  punished  with  imprisonment  up  to  six  months  or  by  a 

'  Into.ricatiiiii  Li.juors,  page  7. 


10 


ccr.  i:i;N-Mi;Nr  tcixiKdi,  (ii-    rm:  i.KiroK   iiisini:ss 


fun-    up    1m    hftfCM    lliiiiis. 111(1    111. irks    I  Mk<.    15,lKHli        Anyono    alio    clues    s.i 
tliriiui:li  t)ii;liKcim-  is  |iiniislKcl  1a    .i   line  ii]i  to  tlirte  tlioiisaml  ni;irks    i  Mks 

Anyone  acting  in  iMiilr.i\ciitii  ii  nf  ilu'  HL;ulalioiis  uiih  rt^.trd  t..  llio 
excctiti(Mi  (if  ihc  l.iw  lli.it  arc  i^Micd  In  llie  lni|n'ri.il  C  lianci.'ll(ir  is  punislicd 
ly  a  *'iiie  up  t(j  one  luiiulrtil  and   lii"t\    marks   i,Mks.   15(1)   (ir  liy  arrest. 

6. 

This  decree  dnes  not  apply  to  brandy  which  U  produced  in  distilleries  of 
the  iinvik(.;ed  class  or  to  lirandy  made  in  other  distilleries  from  the  siih- 
staiices  named  in  Section  12  of  the  law  relating  to  the  duty  oil  brandy  of 
July  15,  1909.     {Imfcrial  Ijia  Gd.-i-//.-,  p.  OOl.) 


Section  5  <■!  tlic  ordiiiaiice  comes  into  force  on  .\pril  6.  1016;  the  re- 
mainder cumc^  into  I'ircL'  (iii  the  da\  nf  public. itioii.  The  Imperial  Chan- 
cellor  decides   the    d.ite   on    which   it   ce.i^es   td   be    in    force. 

Til,-   Imfcri.il  Clum^clh'r's  Dcf'iily, 

I'icrlin.   March   ,il.   l''l,s.  llKi.BKrcK. 

The  alinw  law  was  siiii|ile!neiUwl  on  April  16  bv  a  tk'cree 
sjiecityin^'  the  pcrx.iis  tn  whuni,  ami  the  purpuscs  fur  which, 
s-pirits  Could  he  .--okl. 

Ki:iirL.\Ti().\s    II Ik    n'TTixG   into   effect   the   PROCI.A- 

M.\.TIi^X  OF  THE  .^IST  MARCH.  1015.  RESrECTlXG  THE 
RESTRICTION  OF  THE  PRODUCTIOX  OF  S  I' 1  R  I  T  U  O  U  S 
LIQUORS  ' 

In   piir~uaiu-e  of   Section  4  nf  the  proclamation  of  the  .list   March.   1915. 
rcspectiiiK'  the  restriction  of  the  producticii  of  spicituoiis  liquors  I  prescribe: 
i.   Spirits  in  the  state  in  which  they  leave  the  distillery  ('r  refinery  are  to 
be  regarded  a-,  raw   spirits. 

J.  1 1  I  In  .\pnl.  1''15.  raw  spirits  may  be  supplied  on  pastnent  of  the  e.^cise 
duty  or  on  production  of  Oertificate  II,  f  the  spirits  are  intended 
for  use  in — 

(a)    Hospitals,  maternity  homes  and  similar  instif  Jtions  for  cura- 
tive purposes, 
(b^   Research  laboratories. 

(c)  Factories  for  the  preparation  of  medicaments. 

(d)  Dispensaries   for  use   in  chemists'  businesses, 
(e*   Scent  and-  cosmetic   factories. 

(  f )    Essence  factories  for  the  preparation  of  extracts  from  vege- 
tables,  etc.,    for  teetotal   beverages, 

^  Rnihs-Gcsr!:b:att.  page  208. 


IN  I  KiilM   I    1  KIN' 


11 


(J)  It  I-  |irM|iil,itot|  tn  use  sinrifi  rcU'.iso'l  for  iaxali'>n  in  pursuance  of 
I'ara^jrapli  1  for  i.tlu-r  tli.ui  the  piirpdses  statetl,  ami  in  particular 
to  supply  111  a  raw  state  nr  to  prepare  alcoliolic  heverai^cs  an<l  spirits. 
Cliemists  may,  however,  supply  r.\\\  spirits  to  the  institutions,  lalio- 
ratories  and  factories  enumerated  under  (a)  to  (c)  in  Paragraph 
1,  and  also  in  small  (juantities  to  doctors,  demists,  veterinary  sur- 
ficons,  and  midwives,  or  on  the  written  instructions  of  doctors, 
dentists,  -ind  veterinary  surgeons. 

3.  (1)    In  the  c:ises  mentioned  in   Seilion  J   i'       person   in  charne  of  the 

estahlishment  for  which  the  aUoliol  i^  inded  (Section  2,  Para- 
fjriph  1  (a)  to  ifi]  has  to  notify  the  inland  revenue  authorities 
concerned,  and  st.ite  : 

(a)   The   ipuiniity  on   which   it   is   desired   to   pay   <luty. 

(h)   The  purpose  for  which  the  spirits  are  to  he  used. 

(c)  That  the  c.msuiner  is  aware  that  the  use  of  the  spirits  for 
purposes  (ither  than  those  stated  under  (M  is  prohiliited. 

(d)  Give  an  exact  description  of  the  estalilishment  where  the 
spirits  are  to  he  used  (name  or  firm,  name  of  the  person  in 
charpe,  place,  street,  and  miiiiher  of  the  house). 

(e)  I'urnish  the  siKii.ilnre  of  the  nianatrer,  corrohoration  of 
which  liy  the  l.ical  police  autliorities  may  he  demanded  by 
revenue  f>fVuials. 

(21  Scent  and  co^metir  f.ictories  may  iii't  pay  duty  in  .-Vpril,  l''l.s,  ,,ii 
more  ih.iii  one-twelfth  of  the  quantity  fiii  which  duty  was  paid  in 
the   year    l'>i,,M4. 

(3)  The  estahlislinients  specified  under  (f)  in  Section  2,  Paragraph  1. 
may  only  pay  duty  on  the  amount  of  their  monthly  re{]uiremen!s. 
They  must  send  in  their  application  in  duplicate,  and  on-:  copy  will 
he  immediately  sent  by  the  revenue  authorities  after  payment  of 
the  duty  to  the  revenue  authorities  in  the  district  in  whicli  the 
establishment  is  situated.  These  establishments  are  bound  to  re- 
cord, in  a  special  book,  the  purchase  of  alcohol  for  this  pur|Kise, 
the  use  made  of  the  alcohol,  the  production  and  sale  of  essences 
for  teetotal  lieveraKcs.  They  are  further  bound  to-  show  the  book 
at  any  time  to  the  proper  revenue  or  police  authorities  and  to  admit 
them  to  their  premises. 

4.  For  May,  1915,  and  the  fnllowinp  months,  duty  may  he  paid  on  raw- 
spirits  for  the  purposes  specified  under  (at  to  (f )  in  Paraf;raph  1  of  Section 
2.  to  the  extent  and  under  the  conditions  prescribed,  without  deduction  of 
the  rjuantities  on  which  duty  may  he  paid  in  accordance  with  Section  2  of 
the  proclamation  respecting  the  restriction  of  the  production  of  spirits;  duty 
may  only  he  paid  by  factories  for  the  preparation  of  essences  for  teetotal 
hcverages  I  Section  2,  Paragraph  1.  (f)l  if  the  authorities  in  the  district  in 
which  the  factory  is  situated  consider  that  adequate  control  over  the  use  of 
the  alcohol  exists. 

For  the  linprrial  ChiinceVtor, 
Berlin,  the  15th  April.  1915.  K.^UTz. 


12 


(■.i>\i  i(.\  M I  \  r  (ii.\ii;i)i.  (II     iiii:  i.iuroK    iusi\i-ss 


In  Ru--i.i.  iiniiu-ili,it.l\  i'm11,,\\  ji,^-  tin-  ..rdiT  for  tin-  iiwiliilizn- 
tion  (if  till-  1.111(1  and  -ci  f'Tco  !■!  ilic  1  ■.iii|iiri-,  all  wiin',  lucr  add 
Vdcika  ^licps  \\cr(.-  (.ln^id  and  llu-  sale  '.f  ,ill  inl<  .\:(.:mt>  was  fi'i- 
l)idck-ii  (.'Mi'iit  in  lir-t  da--  r(,->taui-ant>  and  li>iul-,  hy  .irilcr  df  tht' 
(iraml  Dnki'  Niilidla-,  i-'i.iiniiidfr  in  (.liicf  <>(  th-'  arinv.'  Tin- 
(ird(.T  was  to  Cdntinnc  until  tin.-  r..ni|iKtidii  df  nidhilizalion,  I)nt 
sul)>(.(ini-nt  (irdir-  Cdntnuud  ii>  d|jcTati"n.  On  .\nj,'u>t  2r>,  l')14, 
tliL-  C'duncil  oi  .Miin-t(.r-  dicidol  td  Cdntiiinc  the  prdliiliition  df 
the  sale  df  t)iir  and  [idrtir  until  ()it(ilnr  1.  On  Au^nist  27  the 
Admiralty  ('duiuil  alidli-hcd  the  cu.'-tdin  of  treating  saiiurs  to  a 
cup  df  \()dka  dii  \aridiis  dccasinns. 

\  ddka,  lid\vi'\iT,  prc-eiitcd  tin-  nid-t  siTidiK  prdlilcin.  It  is 
not  only  atnuidu-ly  strdiii,'.  and  tlKT<.'f(ir<.'  ])rdducti\c  of  drunken- 
ness, hut  it  had  heen  a  ),"'vernnieiU  iiidiidpdly.  This  indiidp,  ilv 
was  drif,'inally  e-talili-hed  a-  a  nira>ure  df  Cdiilrol  in  order  to 
curtail  excessive  Cdn-uiiiptidu,  Imt  it  had  hecoiiie  a  Sdurce  df  coii- 
sideralile  revemie  t"  tiie  },'d\uriiinent.  I-'roni  the  i)(;int  df  view 
of  a  finance  minister  who  saw  no  further  tli.an  the  next  ruhle  df 
revenue,  the  financial  motive  for  the  continiiation  of  the  sale  of 
Vddka  was  very  -trdui,'.  However,  it  did  not  lake  a  great  deal 
of  intelligence  to  see  that  it  was  a  pemiy-wi;,e  and  pdund-fodli-h 
pdlicy  tdf  the  gd\ernment  to  derive  money  from  a  S(nirci-  which 
depleted  the  Source  of  all  wealth  hy  destroying  the  productive 
power  of  the  peojile.  Accdrdiiii^ly,  on  Septemher  3,  16,  1914, 
tie  Council  (rf  .Miui-ters  announced  that  His  Imperial  Majesty 
had  decided  td  prohihit  the  sale  of  spirits  and  vodka  until  the 
end  df  the  war.  Alxiut  the  first  of  Otober,  in  response  to 
numerous  aiipcals,  it  was  decided  to  prohibit  forever  the  sale  of 
spirituous  li(|Uors. 

Tlioe  rules,  of  course,  did  not  apply  to  malt  liquor  and  wines. 
In  October  the  Council  of  Ministers  empowered  local  govern'-ig 
bodies  to  petiti(.n  for  a  complete  prohibition  of  the  sale  of  all 
alcoholic  beverages  within  the  limits  of  their  jurisdiction.-  When 
such  a  petition  is  presented  the  local  excise  officials  and  the  rep- 

'  /'iM.ri,-,7fiii.;  I.i.iii.us   iR.-slrittirns.  etc.)  cited  above,  pa^e  l.V 

-  Il'i,i  ,  |i;iv;c   14. 


IN  I  Kill  11   (    1  |(..V 


13 


rf^iiitati\t"^  <if  till-  ciiitr.il  Kuwriiiiiciit  imi>t.  uitliiii  llircc  nicmths, 
>tii|)  iln-  siK-  111  all  iiitiixicanl--  in  tlic  di'-trict  in  <ini-sti(in.  This 
jiri\  ik),'L'  was  luadi-  U'^c  (if  hy  many  Imal  ^"^  > ni'nvnts.  I'l-tro- 
j;rail  rt'Strictid  the  sale  nI  Ikit  and  wmk-  td  4''  lir^t  ila^^  Imtels 
and  rvsta)ir;ints,  and  fvcn  in  these  placfs  mdy  pi-rtnitted  these 
li(|Uiirs  til  ho  >tr\fd  with  inials.  ( )n  r)ecenil)<.T  22  the  City  Coun- 
cil iif  Miisciiw  adiiptcd  coniplitc  pnihihitinn  <if  all  intdxicants. 

That  all  these  nieasiircs  fur  the  restriclinn  nr  suppressiim  of 
the  sale  ■'!  ititi  i.xicants  iinuhtced  a  iirntmind  etfeet  there  is  no 
riii'Mi  liirdiiuiit.  Xattirally  there  was  snnie  diHkultv  in  the  com- 
plete tnlnreeinent  nf  the  rules.  Mi  I'.nshinin),'  increased  for  a 
time,  especially  in  the  fnrni  nf  the  redi>tillati<in  nf  denatured 
alccihnl  and  (<i  ctunmercial  mixtures,  smh  as  shellac,  containing 
fitherwise  p<itahle  alcohdl.  Rut  as  to  the  effect  on  the  sum  total 
of  ilruiikeimess,  nn  reputahle  witness  has  ever  denied  or  ques- 
tioned that  there  vv;rs  a  noticeahle  diiniiuition.  Reliahle  statistics, 
hiiwe\er,  which  alime  wnuld  enahle  us  to  measure  the  extent 
to  which  drunkeimess  was  diminished,  are  unfoi-tunately  not 
availahle. 

To  what  extent  the  Russian  deliacle  has  been  due  to  the  ab- 
sence of  her  .'iccusti lined  stimulant  it  is  im[)ossible  to  say.  Doubt- 
less the  a()ostles  of  Uiilshevism  wnuld  contend  that  it  was  only 
after  the  proletarians  had  j,'rown  snher  that  they  could  he  brought 
to  join  the  revolution;  that  so  long  as  they  were  kept  drunk  they 
could  not  he  reached  by  the  appeals  of  the  revolutionists.  On 
til  ther  hand,  it  is  an  open  (luestiuii  as  to  how  far  the  excesses 
of  liie  liolshevik  regime  are  due  to  the  resentment  of  the  besotted 
masses  against  restrictions  that  kept  them  unwillingly  sober. 
According  to  all  reports,  the  revolution  was  accompanied,  not  by 
sobriety,  but  by  orgies  of  drunkenness.  The  desire  to  remain 
sober  could  scarcely  have  been  one  of  the  dominating  motives 
driving  them  to  the  general  demoralization  of  the  Lenine-Trotsky 
surrender  to  German  influence.  It  looks,  on  the  surface,  as 
though  the  desire  to  get  drunk  was  a  more  potent  motive.  Some 
Weight  is  also  given  to  the  opininn,  frequently  expressed  in  recent 
years,  that  drunkenness  is  only  in  part  the  product  of  alcohol; 


14 


i.iA  I  KN  Ml   \  I     (n\|l:(il.    Ill       III!      1  liil  (il<     111    ^IMSS 


(li.U  It  i-^  III  |):irt  till'  |ir"iliHt  ni  lurvniis  iii>tal)ilit\ ,  aiul  tliat 
un>tal)li-  natiiri  >  will  run  i"  t\rc>>f--  in  i  iiu-  way  it  tint  in  an- 
otluT;  ancl  iliat,  it  (l<|iri\i(|  nl  tlu'  ippiHirtiinity  f'T  alrnliclu- 
cxccsM's,  tlnv  will  lirtak  luit  in  niher  wa\s  ami  resort  to  wipr^i- 
txccsM-s,  Muh  a^  I'.ol,liivi-ni.  On  tlii-  jiIuim'  of  tin-  (iiuslinii 
miicli  more  i\ulinir  is  luidcd,  ami  a  more  prolonged  slmly  i^ 
rnjiiin.ll  tliaii  can  iiow  be  given  lu  it. 


CHAPTER    I 


The  Drink  Situation  at  the  Beginning  of  the  War 

The  experience  of  the  United  Kingdom  with  respect  to  liquor 
control  in  war  time  is  of  peculiar  interes  to  Americans.  That 
experience  is  of  more  practical  importance  to  us  than  that  of  any 
other  country.  Not  only  our  language,  hut  also  our  literature, 
as  well  as  our  laws,  our  political  ideals  and  institutions,  and  our 
moral  and  social  habits  are  all  derived  from  the  same  source  as 
theirs.  For  these  reasons,  our  moral,  social  and  political  reac- 
tions are  likely  to  resemble  theirs  and  theirs  to  resemble  ours, 
more  closely  than  those  of  nations  speaking  different  languages 
and  having  different  moral,  social  and  political  traditions.  The 
developments  of  popular  opinion  and  the  actions  taken  by  the 
government  are  likely  to  follow  the  same  rule. 

They  were  at  war  nearly  three  years  before  we  entered  it,  and 
the  problems  of  war  economy  became  acute  with  them  long 
liefore  they  did  with  us.  Therefore  we  are  in  a  position  to  learn 
from  their  experience  rather  than  in  a  position  to  teach  them 
bv  ours.  It  is  therefore  of  the  greatest  importance  that  we  study 
their  experience. 

Thev  had  reason  to  feel  from  the  very  first,  as  we  have  not 
begun  to  feel  even  yet,  that  the  enemy  was  at  their  gates  and 
that  they  were  fighting  for  their  very  national  existed'-  "I'iiey 
would  have  been  a  very  unusual  people,  when  facing  such  a 
crisis,  if  they  had  not  taken  account  of  their  resources  in  man 
power  and  materials,  and  eliminated  everything  that  in  any  way 
depleted  those  resources.  If,  in  facing  what  might  liave  been  their 
last  fight,  thev  had  not  taken  active  measures  to  conserve  every  re- 
source which  might  aid  in  the  winning  of  tlie  war,  and  to  prevent 
everv  form  of  waste  which  miglu  decrease  ilieir  fighting  power, 
they  would  not  have  shown  that  capacity  for  self-discipline  upon 

17 


18 


(■.()\  KKN.MKNT    CONTROL    OF    TUK    I.iyiOK    lUSINESS 


whicli,  aloiif,  tlie  salvatinn  of  ikniocracy  depcrnls.  The  world 
has  always  hccii  ruled  hy  disciplined  iiatii  ms.  I'ndiscipline  has 
always  Riven  way  hefnre  iliscipliiie  with  the  ref,ndaritv  of  a  law 
of  nature.  P.ut  self-discipline  is  the  onlv  kind  of  disci])line  pos- 
sihle  to  a  free  people  under  a  liberal  irovernnient.  Unless,  there- 
ft)re,  free  peoples  will  discipline  themselves  and  do  vnhintarilv 
everything  which  is  necessary  tn  make  them  strong;,  thev  can  not 
hope  to  retain  their  freedom.  Tiiey  must  expect  either  t(i  he 
exterminated  or  to  be  disciplined  from  above  hy  a  despotic 
trovernment. 

No  one  could  seriously  consider  the  (juestion  of  drink  in  Great 
Britain  without  concludim,'  that  there  was  a  j,'reat  .source  of 
waste  both  of  materials  and  of  nian  power.  In  the  midst  of  all 
the  controversies  over  H.e  iiuestion,  and  of  all  the  uncertainties 
with  which  it  is  surnninded,  two  facts  at  least  are  certain  and 
beyond  controversy.  O-  <,■  is  that  stap-li  and  .suj^ar  are  used  in 
the  production  of  alco..  1.  The  othei  is  that  larj,'e  numbers  of 
people  get  drunk  on  alcohol.  Beyond  these  two  facts  there  are 
others  which  are  practically  certain;  but  there  are  none  upon 
which  there  is  ab'^olute  unanimity  of  o[)inion  or  which  will  not 
be  challens^'ed  by  some  one.  Tiie  further  we  proceed  from  these 
facts,  the  less  certainty  and  the  less  unanimitv  there  is. 

It  is  practically  certain,  and  aluiost  undisinited,  that  the  starch 
and  sugar  used  up  in  the  manufactu'-e  of  alcohol  have  more  food 
value  than  the  alcohol  which  is  made  from  them.  It  is  also  prac- 
tically certain  and  almost  undi-puted  tliai  a  man  is,  on  the  aver- 
age, and  for  the  ordinary  kinds  of  productive  work,  less  efficient 
when  he  is  drunk  than  when  he  is  sol)er.  If  these  two  facts  are 
admittetl,  it  must  necessarily  be  atimitted  that  there  is  some  waste 
involved  in  the  manufacture  and  consumption  of  alcoholic  drinks, 
when  carried  on  on  a  large  scale,  and  when  the  court  records 
show  large  numbers  of  convictions  for  drunkenness. 

In  times  of  peace  and  prosperity  a  nation  might  conceivably 
afford  both  forms  of  waste,  as  it  does  many  others.  Even  the 
adornments  and  embelli'-hments  of  life,  much,  even,  that  goes 
under  the  name  of  "culture."  and  upon  which  a  nation  may  pride 


GREAT    BRITAIN  19 

itself  in  times  of  prosperity,  may  have  to  be  sacrificed  as  wasteful 
in  time  of  war  when  the  life  of  the  nation  is  at  stake.  Drunken- 
ness could  scarcely  be  called  an  adornment  of  life,  and  there 
is  nothinj;  in  it  U[)(in  which  a  nation  couki  take  pride,  even  in 
times  of  greatest  prosperity.  It  could  scarcely  be  defended  en 
any  ground  in  time  of  war,  when  every  ounce  of  national  energy 
is  needed  for  national  defense. 

.Vs  to  the  quantity  of  waste  in  fond  materials  and  man  power, 
there  are  comparatively  few  recorded  or  authenticated  facts  upon 
wliicli  to  base  a  calculation.  That  there  is  some  waste  is  a  cer- 
taintv.  Just  how  great  that  waste  is,  is  largely  a  matter  of  cal- 
culation, based  upon  the  few  recorded  and  authenticated  facts, 
and  supplemented  by  the  ol)servation  and  experience  of  those 
(k'emed  most  competent  to  judge. 

Among  the  recorded  and  authenticated  facts  may  be  included 
figures  as  to  the  quantities  of  liciuor  produced,  imported  and 
exported.  From  these  it  is  not  difficult  to  calculate  the  quantities 
retained  for  home  consumption  and  the  per  capita  consumption. 

During  the  year  ending  March  31,  191-1 — that  is,  the  last  year 

unaffi'cted  by  war  conditions — the  following  quantities  of  spirits, 

malt  li((uors,  and  wines  were  produced,  imported,  exported,  and 

consumed  in  the  United  Kingdom:' 

Spirits.  Malt  lii|iiors,  Wines. 

Proof  gallons  gallons  gallons 

Production    2».7HSA96  1.291,114.476 

Imported    5.806,682  2.687,940  11.675,731 

Total    34,.592.178        1,293.802.416 

Exported    l.W.5,752  24,716.916  38.415 

Retained   for  consumption 32.596.426        1.269.085.5110      '1 1.(>37.31() 

Per  capita   -71  27.51  .245 

♦E.xcHisive  of  734  gallons  delivered  free  of  duty  from  bonded  warehouses 
for  the  use  of  .Vmhassadors   etc. 

Again,  we  have  official  figures  as  to  the  materials  used  in  the 

manufacture  of  alcoholic  liquors  in  the  I'nited  Kingdom  at  the 

beginning  oi  the  war. 

'See  Fifth  Report  of  the  Commissioners  of  His  Majesty's  Customs  and 
Rxcise.  (F.ir  the  year  ended  31st  March,  1914.)  \ol.  X\ll.  Tahles  12.  14. 
3i,  34  and  41. 


HI 


20  GOVERNMENT    CONTROL    OF    THE    LiglOK    HLSINESS 

The   fcilldwirij,'   materials   were  used   in   the   manufacture   of 
spirits  and  malt  liqudrs: 

MtJtcnals.'  Estimated  Quantitu-s  I'scd  in  I 'istillcrii-s  in    I'.'dr  Ending 
Siftt-mbcr  ju,  191J 

Quarters  Pouiufs 

Malt    l.n.S.VMiS  5(l5.;.?1.840 

Grain    1,198.730  575,390,400 


Rice    . . . , 

Molasses 
Other   . . . 


Cwt. 
3.780 
\,204.22i 
:0.713 


4.'3.360 


Materials.-  Estimated  Quantities  Used  for  Beer  in  Year  Ending 
Set  ember  jo,  i<^ij 

Euslicls  Pi'iiiuls 

Malt    52..'87.637         1,777.779.658 

Unmalted  corn   91.0o8  4,371,Jo4 

Cwts. 
Kice.  rice  j;rits.  flaked  rice,  maize,  and  other  simi- 
lar  preparatiiins    1,611.357 

■uyar.   inohidinn   its   ec|iiivalents.   syrups.  Khioose, 

and  saccharin    3.J79.814 

Pounds 

Hops   6.'.911.376 

Hop   siibistitutes    18.885 


180,471,984 
307,339,168 


Since  no  wine  is  produced  in  Knj,dand,  there  can  not  be  said 
to  bo  any  waste  of  food  materials  within  the  country  by  reason 
of  tlie  wine  industry.  Something,'  nui.st,  nf  course,  be  sent  out 
of  the  country  in  the  purchase  of  wine  from  other  countries,  but 
it  need  not  neces>arily  be  food.  Since  it  was  imported,  however, 
either  from  her  allies  t  from  neutral  countries,  it  would  not 
be  improper,  if  it  could  1  e  done,  to  calculate  tiie  amount  of  iuod 
value  used  in  makin!,;  tlie  wine  that  was  imported  in  1'  0  United 
Kingdom.  However,  this  would  be  a  very  dilTicult  calculation  to 
make,  because  no  one  coidd  say  sjiecifically  how  much  of  the 
fjrapc  fjrowinjj;  industry  of  the  wine  prodiicinj,^  countries  would 
be  devoted  to  the  production  of  food  if  the  sale  or  exportation 
of  wine  werv  prohibited.     In  all  probability,  many  of  the  vine- 

'  From  Fifth  Report  of  the  Commissioners  of  His  Majesty's  Customs  and 
F.xciM'.     (For  the  vear  ended  M-l  .March,  1914  J      Vol.  X\li,  page  J8. 
-Hid..  1914     X\II.  pa,.,-e  ,'4. 


CHEAT    IIKITAIN-  21 

yards  would  be  destroyed  and  the  land  turned  over  to  other  uses. 
How  much  this  would  affect  the  food  supply  of  the  neutral  nr 
Allied  countries  could  only  be  estimated  in  the  most  general 
terms.  P..  sides,  it  is  by  no  means  certain  that  England  would 
get  anv  more  food  if  she  stopped  importing  wine. 

Some  idea  of  the  magnitude  of  the  business  of  selhng,  as  dis- 
tinct from  the  business  of  manufacturing,  may  be  gained  Irom 
the  following  table,  which  gives  the  number  of  retail  licenses  tor 
the  sale  of  liquor: 

Annua:  HrUtil  LhCnSiS  in   Vrar  rmlina  March  .,-f,  rol4' 

On  Off 

premises  premises 

Spirits j6  81 1  j.M  51) 

Beer,  cider,  and  perr>    2o  45 

Cider  and  perry ,  ,,^  14  -q'l 

Wines  and  sweets   (alcolvdic^    -0;j^  S-^ 

Sweets    (alcoholic)    ,,(,■, 

I^™'5    '.'.'.'.'.'.'.'.'.'.'.'.  55'l  '.. 

Curs    

^      ,  115.45?  49.605 

Total    

The  statistics  of  drunkenness  are  more  significr.nt.  at  least  so 
far  as  their  bearing  on  the  waste  of  man  power  is  concerned,  than 
the  statistics  of  production,  consumption,  or  sale.  It  is  obvious 
that  in  every  case  of  conviction  for  drunkenness  some  of  the 
time  of  the  convicted  person  has  been  subtracted  from  his  regu- 
lar occupation,  to  say  nothing  of  his  impaired  efficiency.  For 
every  case  of  conviction,  however,  there  must  obviously  be  a 
good  many  cases  of  impaired  efficiency  in  which  the  individual 
affected  has  not  reached  that  stage  of  drunkenness  which  calls 
for  the  attention  of  the  police  and  'he  courts. 

Drunkenness:  Convictions  in  Courts- of  Nummary  Jurisdiction,  igis" 

England  .tnd   Wales 145.976.    Judicial  Statistics,  rage  64. 

S."ntland  ^8,971.     Judicial  Statistics,  pane  6,. 

Ireland   .   :.■.■.'.■.. 59,624.     Judicial  Statistics,  page  44. 

Total   234,571 

1  From  Fifth  Report  of  the  Commissioners  of  His  Majesty's  Customs  and 
Excise    "r-r  the  vear  ended  .?lst  March.  l')14..      Taue^  (.1    muI  „.'. 

2  From  Parliamentary  Papers,  1914,  C. 


COVEKXMKNT    fONTKOI.    OK    TH?:    I.Inl  OU     lU  SINKSS 


Most  of  the  calculations  as  to  the  amount  of  waste  must  he 
based  upon  tliese  nlTicial  lij^iires,  which  may  l)c  taken  as  autlieniic. 

There  arc  at  least  three  conspicuous  fi'rms  of  waste  which  c:\.\\ 
he  counted  separately,  without  overlappin;,'  and  without  coimtins,' 
anv  item  mure  than  once.  I'irst,  the  food  materials  used  up  in 
tiie  production  of  alcoholic  lif[uor;  second,  the  proptTty  and  the 
man  pr)wer  usi-d  in  dispensing  the  li(iuor  to  the  dri-'.kins  pulilic 
after  it  is  produced;  and,  third,  the  impaired  efficiency  of  those 
i^uiltv  of  overindulgence.  Certain  minor  items  of  waste  niif,'lit 
al>o  \k-  counteil  in.  I'irst,  the  manufactured  product,  especially 
nhen  it  is  in  the  form  of  beer,  is  very  bulky  and  requires  more 
space  on  freij,dit  cars  and  ships  than  the  foml  materials  would 
have  required  had  the  ^,n-ain,  su>;ar,  and  molasses  been  made  into 
food  instead  of  beer.  This  excess — that  is,  the  amount  by  whicli 
beer  transported  on  freij;ht  cars  or  ships  exceeds  in  bulk  the  fin.d 
materials  which  niiijlu  have  been  manufactured — obviously 
])laccs  an  added  burden  on  the  trans[>(jrtation  system  when  it  is 
already  overburdened.  Second,  the  extra  time  or  the  extra 
man  power  required  in  policins^,  and  in  the  judicial  procedure 
which  tries  .and  convicts  cases  of  drunkenness  shouUl  also  be 
taken  into  account  in  a  complete  iiuentnry  of  the  wastes  wliicii 
result  from  a  lavish  consumption  of  alcoholic  licjuors.  That  is 
to  say,  if,  throuj,'h  the  elimination  r)f  drunkenness,  the  police 
force  could  be  cut  down  and  also  the  personnel  of  the  courts, 
just  so  much  man  power  would  be  saved  for  other  purposes. 

It  would  n<  t  be  proper  to  count  the  waste  of  food  materials 
and  also  to  count  as  wasted  the  man  power  used  in  manufactur- 
ing alcoholic  drink.  To  make  the  ffrain  into  food  would  prob- 
ably require  as  luuch  man  ix>wer  as  is  required  in  making  it  into 
drink.     But  the  food  material  itself  is  a  positive  loss. 

The  exact  extent  to  which  food  is  wasted  in  the  manufacture 
of  alcoholic  drinks  is  not  easy  to  determine.  That  there  is  some 
destruction  is  quite  certain,  but  how  to  measure  it  is  a  difficult 
(juestion.  That  there  is  some  destruction  is  shown  by  the  fact 
that  alcohol  is  made  from  starch  and  sugar  and  t'.iat  the  alcohol 
thus  iiKide  lias  less  food  value  than  the  starch  or  sugar   from 


(iUKAl     iUaiAlN 


23 


wliich  it  was  made.  That  "-tarch  and  sii^ar  are  foods  is  a  di-iiKni- 
strablc  fact,  and  their  food  vahies  are  asccrtainahle  with  some 
approximation  to  accuracy.  If  it  were  clearly  demonstrated  that 
alcohol  is  also  a  food  in  a  practical  economic  sense  there  would 
be  some  compensation  for  the  destruction  of  suf^ar  and  starch  m 
its  manufacture.  If  its  food  value  were  ascertainable,  the  loss 
could  then  be  calculated  with  some  approach  to  certainty. 

The  weight  of  scientific  opinion  is  to  the  effect  tliat  whatever 
food  value  there  is  or  may  be  in  alcohol  it  is  so  small  as  to  he 
negligible  in  the  rationing  or  nourishing  of  consumers.     If  taken 
under  the  right  circumstances  and  in  minute  ([uantities,  it  is  un- 
d.iubtedly  burned  in  the  human  system  in  such  a  way  as  to  pro- 
duce energy.     The  same  is  true  of  citric  and  acetic  acid  and 
various  oilier  substances.     As  these   substances  are  commonly 
taken  in  real  life,  even  by  the  most  moderate  drinkers,  they  pro- 
duce so  little  energy  as  to  be  negligible.    As  consumed  by  any  but 
the  most  moderate  drinkers,  their  deleterious  effects  vastly  out- 
weigh any  food  \  alue  which  they  may  liave,  or  which  they  might 
show  under  the  special  conditions  of  a  laboratory  test.    Any  one 
who  would  take  enough  citric  acid,  for  example,  in  the  form  of 
lemon  juice  to  furnish  an  apprecialile  amount  of  energy  would 
vei  y  likely  suffer  evil  consequences.     The  same  is  peculiarly  true 
of  alcohol.     In  the  actual  rationing  of  a  nation,  therefore,  its 
food  value  must  be  regarded  as  nil.     The  starch  and  sugar  used 
in  its  manufacture  must  be  regarded  as  a  total  loss  so  far  as  food 
is  concerned. 

Why  not  limit  or  prohibit  the  use  of  lemon  juice  as  well  as  of 
alcohol?  Nature  seems  to  do  its  own  regidating  in  the  case  of 
lemon  juice  and  all  similar  substances  which  may  easily  be  taken 
in  excess  but  for  which  there  is  no  particular  appetite  which  leads 
to  excess.  There  are  no  statistics  or  observations  to  show  that 
large  numbers  «f  men  are  incapacitated  for  work  through  over- 
indulgence in  lemon  juice.  There  are  statistics  and  observations 
in  abundance  to  show  that  considerat)le  numliers  of  men  are 
incapacitated  tlirough  overindulgence  in  alcohol.  Nature,  .a 
tliis  case  does  nol  seem  to  do  its  own  regulating  by  destroying  the 


24 


cen  i:i!NMi:nt   iiintk'(ii    "r    riir   i.iuioit    lusiMiss 


lik 


!"« 


ti-r   tlK-   Mibstancv 


iK-f. 


rr    injury 


tn    tl 


le   system   rosuli- 


Natiirc  strins  tn  >it  up  sucli  a  iliUiisc  a^'Unst  (ivfrconsuuiptuni 
(if  Kinon  juici-  and  many  otlu-r  tilings  vvhicli,  if  taken  in  excess, 
l)ecnme  injurious.  Tlie  appetite  is  ilestroyed,  nausea  may  even 
set  in.  a<  a  \\arnint.r  and  a  safe.ijuard  ai,'ainst  (nercnnsumptiun. 
Where  nature  itself  re^idates,  it  is  scarcely  necessary  that  the 
},'nvernin(.iit  should  concern  itself  ahnut  the  natter. 

.\  priimjit  ([uietus  is  put  upon  tiie  ar),'unient  tliat  alcohol  i,r 
anv  form  of  aleoliolic  drink  is  a  food  hy  the  proposal  that,  if  so, 
leoholic  diiiik  in  war  time  >hnuld  have  their  allow- 
>f  food"  corre^pi'ndinKly  reduced.     This 


tlk-v  who  use  a 


anee  oi  other  kinds  oi 
would  seem  too  oh\  i  us  to  neeil  discussion  in  a  time  of  food 
shorta.^e  when  the  population  is  beinj,'  rationed.  If  a  drinker  and 
a  non-drinker  are  allowed  e(|ual  ([uantities  of  solid  food,  and  the 
drinker  is  allowed,  in  addition,  a  (|uantity  of  "lifjuid  food" 
whetlur'in  the  form  of  alcoholic  drink  or  of  milk,  obviously 
the  drinker  is  heinj;  hotter  "fed"  than  the  m  m-drinker.  If  alci  iln  >! 
is  a  food,  and  if  there  is  no  wa^te  in  it>  manufacture,  fairness  in 
tiie  di'<tril)ution  of  food  woulil  re(Hiire  that  if  one  family  con- 
sumes as  pineh  alcohol  as  would  rei|uire  a  pound  (jf  starch  or 
of  sugar  in  the  making,  its  allowance  of  starch  or  of  sugar 
should  he  reduced  hy  one  pound.  When  this  was  proposed  in  the 
Hou>e  of  Commons,  nothing  further  was  said  liy  tlie  defenders 
of  alciihol  as  to  its  food  value,  which  is  a  pretty  clear  indication 
as  to  the  ingenuousness  of  the  contention  that  alcoholic  drink, 
as  commonly  taken,  is  a   foml.' 

It  may  he  contended,  of  course,  tliat  .alcoholic  drinks  are  not 
identical  with  alcohol  and  that  some  of  these  drinks,  such  as 
beer,  for  e.xample,  may  contain  nourishment  aside  from  the  al- 
C(.hol  which  tluy  c  itain.  This  Contention,  however,  scarcely 
meets  the  issue.  The  real  objection  is  to  rdcohol,  its  manufac- 
ture and  its  consumiJtion,  and  not  to  the  other  ingredients  that 
mav  be  contained  in  these  drinks.  It  is  the  alcohol  which  pro- 
duces ilrunkeiiness  .and  it  is  the  alcohol  -n  whose  production  foou 
materials   are    wasted.      Tiiere   has   bejn   no   objection  on    the 

1  Po'.-  tlic  CiiiuiiliLin  Mii;ni-iiu\  \o\.  49,  1917,  page  302. 


;l\l     I'.Kir.MN" 


25 


(Is  i>f  w.ir 


iiliiiin    t'l  ainllmij. 


ci'iitiiiiucl   III   llu->i'  drill 


.•xct'iit  tlic  :ilc..h..l.     'Ilii-  lici'iiT  ciiiitna  i-ul 


UV    lltlHT    III 


of    ristrictioii    "r    pi 
drinks.     In  sutue  ciiscs 


itic'ii    ha''   iii't    aiiplin 


1    t. 


u-  wav 


ii>>iialC('liiini 


Jkcr  containin),'  li-s  lliaii  2  per  ectit  cf 


itr<pl. 


I)ro(,f  siiirit  hasbmi  free  from  j,'<'Vc-riinKiit  restriction  or  c 
Whatever  nourishment  tiicrc  may  W  in  hicr  asulc  from  akoli(,l 
c.ul.l  still  Ik-  j.rovide.l  in  a  nonalcoholic  <lrink  or  in  a  drink  with 
so  low  an  alcoholic  content  as  not  to  l)rinK  it  within  the  f^eld  of 
^'overmiK-nt  restriction  ..r  control.  Since  il  is  only  the  alcohol 
wiiicli  has  heen  the  real  ohject  of  K"vernment  rci.rcssion.  we  are 
justified  in  cousideriiiK'  the  (lueslion  of  economy  wholly  frum 
tiiat  point  of  view. 

r,nt  while  we  are  safe  in  assumin>r  that  the  loss  of  starch  and 
suK-ar  in  the  production  of  aIcoh<'l  is  irreparahle,  and  that  there 
is  no  calculahle  food  value  in  the  alcohol  to  compensate  for  the 
loss,  it  is  not  easv  to  calculate  the  e.xact  loss  resultini;  from  tlie 
use  of  Krain  in  hr'ewin^^  and  distilling'.    Only  the  starch  and  su^ar 
are  used.    The  fats  and  the  proteins  remain  in  the  slops  from  the 
distilleries  and  in  the  brewers'  K'niins  and  malt  sprouts  from  the 
breweries.     While  they   do  not  remain  in  form  fit  for  human 
consumption,  they  have  a  certain  value  in  the  feeding  of  animals. 
So  far  we  are  on  solid  K'round  and  not  in  the  morass  of  opin- 
ion, conjecture,  or  calculatitiii.     How  to  estimate  the  comparative 
value  of  the  whole  grain  (.n  the  one  hand  and  of  that  part  which 
is  left  after  the  brewer  or  the  distiller  is  th'ough  with  it,  on  the 
other,   calls   for  some   careful   calculation.      This  calculation   is 
made  ditTicult  by  reason  of  the  various  uses  to  wliicii  grain  is  put, 
and  the  variety  of  conditions  under  which  it  is  used. 

If  only  so  much  of  the  grain  were  used  for  the  manufacture 
(,f  flour  or  cereal  foods  for  direct  human  consumption,  as  to 
leave  a  residue  in  the  form  of  mill  feeds  with  a  feeding  value 
equid  to  that  of  the  refuse  from  the  breweries  and  the  distil  eries, 
the  whole  food  value  of  the  flour  or  cereal  would  be  saved.  If 
the  refuse  from  the  flour  or  cereal  mills  were  exactly  equal  in 
value  for  animal  feeding  to  the  refuse  from  the  breweries  and 
distilleries,  these  two  items  cancel  each  other.     We  .should  then 


2C^ 


(;()\  I- 1;  \  M  1  N  I     c  ii\  I  Ki  il 


I  II I-.    l.liil  i)U     111   >|  N  I  ss 


li.ivi-  I'lilv  t"  riiinpaii  tin-  ti'i'd  \.iltu'  of  ilic  flmir  anil  iiTial  witli 
tlial  I  if  tlif  all' '111 'I.  >iiui-  ilk'  lattiT  is  |iraitiiall\-  nil,  it  ha\t- 
tlii-  wli'  K-  \  iliu'  lit  till'  I'liriiiiT  a'-  a  tutal  j^aiii  wliti)  the  ),'raiii  i^ 
ii-rd  fi'i  till  iiriHhatii'ii  nt  tlmir  ami  ci.ri.il,  and  a  luta!  in'-s  wluii 
it  i>  ii'-i-d  tiir  tlu   iirndiictii  III  nt  alinliiilir  drinks. 

ill  nnlinarv  tiniiN,  tin  I'.ni^li'-li  ihmi|iK'  du  iinl  cniisunic,  in  the 
fnrin  iif  liroad  nr  iirr.il.  larije  (ju.'iiititio  nf  the  kinds  nf  f,'rain 
usod  in  the  inanulaiturc  nf  ak'nlml.  In  time  nf  w.ir,  ImwrMT, 
wIk'ii  lluTi'  i>  a  danuii'  nf  fnml  faiiiiiu',  ;i  yrcat  many  li.ihits  lia\i' 
tn  In-  iliani,'cd.  r..iiK'\  and  ixo.  wliiili  air  llic  iirinrijial  .grains 
ii^i-d  ill  ilk'  inamitaitiiri.'  >>{  lii|uiir  in  llir  I'liitnl  Kmi^dmii  niako 
thnrnu^dilv  s;i!i~fai"t"r\  llmiv  .ind  ;iri'  u-cd  Inr  tin-  |inr|)iisi-  in 
iii.iiu-  i-nnntrie-.  Km.-  is  the  iinni'iii.al  hreadstntl  >>{  lari,'!.-  nuinlicrs 
iif  jiinpli-  in  C'lntral  .ind  1-astirn  iuirnpc.  Kicc  and  inai/.e  are 
also  ii^ed  hy  larije  |inrtinns  nf  the  iiniinlatioii  uf  the  earth  fur 
their  direct  cnnsuni[itinn. 

Si.\t\  per  cent  nf  the  barley  may  be  made  into  flour  suitable 
fur  ni.ikiin,'  bre.'id.'  .\  sliijhlly  larger  |iercenta,t;e  nf  the  nther 
jjrains  can  be  thus  utili/.ed.  If  00  [kt  cent  of  all  these  grains 
were  milled  into  tinur  nr  cereal,  the  rem.iinini;  40  ]ier  cent 
\vinild  have  sli,i,ditl\-  hii^'her  value  for  the  feeding'  nf  .aiiiiii.ils  than 
the  refuse  wmild  have  if  the  same  j^rain  were  used  fnr  the  making 
fif  alciihnlic  drinks.  Th.  ()0  per  cent  Used  fnr  the  manufacture 
of  human  fond  would  th  efnre  lie  a  clear  k''''"-  This  wnuld 
amnunt  tn  a  tmal  nf  (')4X."J7,360  pounds  for  the  I'nited  Kinj;- 
dnni  duriuij  the  year  eiidiiii,'  March  31,  l')14.  This  quantity 
wnuld  have  furnished  a  |"iUnd  nf  ilnur  or  cereal  |ier  day  tn  mie 
and  three-<|u;irters  millinii-  nf  penple  fnr  a  year.  If  we  assume 
that  twii-third-  i>i  a  pnuiui  nf  dry  flour  will  make  a  pnuud  Inaf 
nf  b.iker's  bread."  the  extra  third  of  a  pmind  beinj,'  in  the  fnrm 
of  mnisture,  and  if  we  make  a  similar  ;dlowance  for  the  cere.il 
when  it  is  cm  iked  ;md  prepared   fur  coiisumptinn,  we  have  the 


'  "TIic  iIumIv  ailherini,'  lull!  nf  larlov  Kr.iiii  constitutes  aliout  15  per  cent 
of  its  tntal  weiKlit."  W.  A.  Henrv  ;  Icds  antl  l-crdimi.  F-'levuntli  iClition. 
Madison,  W  i>..  I'^ll      Taiic  l-td, 

-■  I  lilt  liiinilrcil  ami  niiifly-six  puumls  of  mixed  rye,  wheat  and  barley  flour 
makes  -'"J(l  [loiincl  I..aves  of  lireail. 


(,U1  Al      IIMIAI.V 


27 


e(|mval("nt  d  a  jii'inul  li^il  inr  (la\-  fcr  Iwn  aiiil  ti 

li'lll^   of    IK'dlili. 


iKlilh- 


This  calculation  Kavcs  out  of  account  tlic  sufjar,  syrup,  ami 


molii 


usid  ill  tile  hrt-winj,'  and  distilling'  indu-tri 


Th 


no  data  upon  w 
tl 


liich  to  calculate  tlu-  proportion  of  tlu-c  uiatiri 


d^ 


It 


Is  known  tlial 


Jiat  is  suitable  for  liuinan  coiisiini|,tion. 
materials  of  this  kind  aic  cdihlc  and  oilur  p<iriions  can  he  refined 
or  iiuriruil  ami  made  edilile.  hut  just  what  i)roportioiis  can  m'.| 
now  he  determined.  On  the  other  hand,  it  must  he  reineiiiher( d 
that  not  all  the  alcohol  winch  is  distdled  i-^  destined  f.ir  drink.  A 
certain  amount  must  be  used  for  industrial  purjioses.  This  would 
certainly  re(|uire  more  than  tiie  noiiedihle  materials  al  jiresenl 
used  in  distillation. 

'  We  have  also  left  out  of  account  the  hops  which  figure  aniont; 
the  materials  used  in  Iirewinj;.  Since  they  are  not  used  as  food, 
they  could  not  fiKure  directly  as  a  part  of  the  imihleni  of  the  fooil 
sujiply.  They  coulil,  however,  be  considered  as  indirectly  affect- 
in),'  that  problem  by  reason  of  the  fact  th.it  they  occupv  land  and 
cnj,'aK'e  labor  which  mij,'lit  (otherwise  produce  food.  In  the  long 
run  tliis  would  lie  a  leKitim.ate  consideration.  As  a  matter  of 
temporary  war  ec(.noniy.  however,  it  would  be  of  more  than 
doubtful  expediency  to  destroy  productive  hop  fields  in  order 
to  grow  grain.  It  would  he  similar  to  a  policy  of  destroying 
vineyards  and  orchards  in  order  to  grow  grain.  While  the  food 
produced  hv  an  apple  orchard  in  the  form  of  fruit  is  less  than 
might  be  produced  if  the  land  were  devoted  to  the  growing  of 
grain,  still  the  destruction  of  the  apple  trees  for  a  temporary 
purjiose  would  seem  wasteful  rather  than  economical.  A  jiarallel 
argument  could  be  made  with  respect  to  the  destruction  of  the 
hop  fields.  If  the  food  shortage  were  likely  to  be  long  continued, 
it  would  be  economical;  it  might  also  he  necessary  to  sacrifice 
both  the  hop  fields  and  the  orchards.  Only  the  most  dire  neces- 
sity would  justify  such  destruction  as  part  of  the  war  time  pro- 
gr;un  of  food  production. 

One  of  the  most  difficult  questions  in  the  calculation  of  the  loss 
through  the  use  of  grain  in  the  manufacture  of  alcoholic  drinks 


-.s 


(;<)\Hi.\  M  I  \  I     icJNlKol.    CI      nil      I  Iiil  (IK     IIISIM.S* 


1^  lli.il  "f  ai'iir, 11-1111,'  ilir  ril.iiiM'  •,.iliu-  nl  llic  pniin  i  iii  tlu'  «>no 
hand  .iml  llu'  --t.irtli  aiiil  -1114. ir  <\\  ilio  (rilur.  Tin-  rifii-c  fmni 
the  hrt-wtrii^  .itiil  (li-lillirns  n.iii;iiii>  prjiitica:  ■  all  of  tlu-  iim- 
tiiii  wluili  w.iN  liTiiiirK'  ill  the  j,'raiti.  A  litllc  's  mi|ii>(is(.(1  to  ^1) 
into  tlic  litiT  aiiil  \k  lulil  ill  ^'iliiiinii.  This  is  ^"tiU'iiiiii-s  esti- 
niati-d  as  lii>,'ii  a-  liiuni  [h  r  cmii  ci  the  l"ial  prnti-in  ci'iitiiit  i>f 
llic  f,'raiii.  Tlii-,  Iicwinit,  i-iuld  he  saved  in  lu-i-r  with  l(--->  than 
I  IK-  \nr  I'liit  "I  jiim  •ilci'hi'i,  a-  well  as  in  luir  uitii  ,1  |n  r  cent 
hij^'h  cm  iii^'h  t' '  ]iri  dint'  inii  'xitalii  'ii.  This  nu-ans  tim  tiie  ntuse 
Irmn  the  hnwery  ii'iiiaiiis  iiioii'  prnicin  than  the  rcliisi-  Irmii  the 
fli'iir  xr  ctTcal  mill.  I  hi  thi-  ctlur  hand,  it  is  the  aim  of  the 
hrewer  cr  tile  ch-iiUer  tip  Use  practically  all  ^f  the  March  and 
sii-^'ar  and  lea\e  in 'iie  nt  it  in  the  refuse.  This  means  that  the 
refuse  frcni  tile  hrewcries  and  distilleries  contains  less  starch 
and  siii;ar  than  the  refuse  frdu  the  tlnir  and  cereal  nulls  when 
()0  [ler  Cent  of  the  strain  is  milled  fi  'r  himian  ci  insiimpticiii. 

Ill  iii.ikitig  inalt  tlie  liarlcy  uraiiis  arc  first  stccpi'd  in  warm  water  until 
tlu>  are  ■•nit.  The  ^;raiii  is  tluii  lu-M  at  a  warm  tcininratiirc  iitilil  it  lie-ins 
to  fpnuit.  ill  which  jirncc-s  a  fcriiit'iit  or  enzyme  lalKd  "iliastase"  cmncru 
the  stanh  iiiln  a  t'Tin  ni  siiRar  c.illeil  "maltose."  .\s  soon  as  th)S  cliaiiKe 
has  ociurricl  ihc  siTmitiiij;  grains  are  ([uickly  dried.  The  tiny,  dry,  shriveled 
spriaits.  se|iar.itccl  fruiii  tlie  grains  are  called  "malt  sprniits."  ami  the  dried 
Kraiiis  with  their  eortent  of  malt  siij!ar  form  malt.  In  the  m  imu.utiire  of 
liter  the  hrewer  extracts  the  soliihle  m.ilt  sn^'ar  and  some  nitmnenons  matter 
from  the  malt.  Ihe  freshly  extracted  malt  fjrains  constitute  wet  brewers' 
Kr.iin'^,   winch  on  lirvnii;  in  a  vacnnm  af;  called  dried  IjivWcrs'  ^rnsins.' 

In  the  mainifactiire  of  alcohol,  the  corn,  rye,  etc.,  aft;T  i,rindinvi  aic 
treated  uith  a  solution  of  malt  to  convert  the  starch  into  sii>;ar,  which  is  next 
converted  into  alcohol  by  the  action  of  yeast.  This  is  distilled  olf  and  leaves 
a  watery  residue,  known  as  distillers'  slops  or  slump.  Formerly  the  slump 
was  fed  to  fattening  steers  at  the  distillery;  now  it  is  largely  dried  in 
vacuum  and  the  prciduct  placed  on  the  market  as  a  cattle  feed  under  \.irioiis 
proprietary  names.  In  1104  Lindsey  if  the  Massachusetts  (Hatch)  Station 
placed  the  annual  output  of  dried  distillers'  k'rains  at  dO.iKK)  tons  I'ntd 
recently,  most  of  this  product  was  exjiorted  to  (ierniany.  Dried  distillers' 
grains  are  rich  in  digestible  crude  protein  and  fat.  with  a  fair  content  of 
carbohydrates.  Qth  m.ike-  the  richest  and  rye  the  poorest  dried  distillers' 
grains.- 


'  \V.   .\.   Henry:   ../>.   at.,  paj^e   141. 
-  ilud..  pajje  _'rH. 


(■.KIAl      lUUIAlS 


■>() 


It  li.is  lacn  t(in  often  ;ismiiih-<I  tli.it  tin-  protcm  i-  ilu  (.iil\  I'm.,| 
cKiiuiU  wlmh  h.is  :my  viiluu  in  tlic  ftediiin  of  aiuin;il>,  hut  {h\- 
asMiinptinn  is  mnipk-ttly  \  itln'Ut  |i.nii,;,>ii(>n.  ll  i>  trui'  lliat 
fverv  tii-ikT  >'f  anun.iN  lm\s  |in'ttin  ami  i).iy>  ;i  lii^li  pricf  I 
^I't  it,  ami  that  fcals  rich  'ii  jirotiiii  i)riii),'  a  >lik'litly  hi^'hor  piici- 
than  Ifids  riih  in  stan'.i  and  Mii^'ar.  Ni-vcrthcKsN,  March  i-  the 
nw'St  important  cKincnt  in  animal  feed  and  much  iiirr.  stardi 
than  pH'tfin  is  ropiirid.  It  luippfn>,  In  wivcr,  dut  lu  -pitc  of 
the  larger  d'-maiid  lor  starch  than  for  protein,  tlu'  supply  of 
st.irch  is  even  larKcr  i.  proportion  than  the  demand  fo-  t  aii<l 
the  supplv  of  priuin  smaller  iti  proportion  than  the  demand. 
This  presents  a  prohlem  which  can  only  be  solved  after  the  most 
elaborate  experimentation. 

\\c  have  !iext  to  consider  the  relative  value  for  purposes  of 
human  nutrition  of  the  whole  jjrain  when  fed  to  anim.ds  and 
of  the  refuse  from  the  breweries  and  distilleries  when  simil.irly 
used.  How  nmch  more  milk  is  produced  from  a  bushel  ui  barley 
when  the  wlmle  fjrain  is  fed  to  milk  cows  than  is  produced  from 
the  residue  from  the  same  bushel  of  barley  after  it  has  pa-^scl 
throuKdi  the  brewery  or  distillery?  Here.  aK.iin,  some  miscon- 
ceptions have  arisen  because  of  the  consideration  of  protein  to 
the  exclusion  of  starch  as  a  food  element.  Since  most  of  the 
protein  remains  in  the  refuse  from  the  breweries  and  distilleries, 
it  has  been  assimied.  for  what  reason  it  would  be  impossible  to 
state,  that  there  is  no  los^;  in  feedint;  value.  It  has  even  been 
hinted  that  there  was  a  S-^'m  in  feedinj;  value.  People  have  been 
warned  that  if  the  brewing;  and  distilling  industries  were  stopped, 
and  there  was  therefore  no  more  refuse  to  be  had  from  these 
sources,  it  would  actually  cut  down  the  feed  available  for  dairy 
cows,'  and  therefore  cut  down  the  supply  of  milk.     This  could 

1  Fnr  example,  S.  T.  Tlinnn''^"".  i"  -T  I"-'"""  t'^  T^"'  Vo'i""  (^'ew  York)  for 
May  17.  1''17.  savs  :  "bi  consicleririK  the  proliitiilion  question  as  it  would  aflfeLi 
the  food  suppiv'of  the  cnimtrv,  it  minht  t.c  well  for  s,,iiienne  to  rail  attention 
1.1  a  fact  too  often  overlooked,  or  at  least  disregarded.  In  ttie  distillation  ot 
alcohol  and  spirits  ahout  one-third  of  the  wei«ht  of  the  jjrain  used  is  returned 
in  the  form  of  a  very  valuahle  hy-product,  called  distillers'  dried  grains. 
Tins  product  contains 'all  of  the  protein  anil  almost  all  of  the  fat  content 
of  the  whole  grain,  the  only  loss  being  in  the  starch  cr  carlioliydrates.     ]or 


30 


i,i)\  i.;;.\  .Mi'.N  r   i(i.\ri.'()i.  or    ;iii;  i.ii'i  m;    r.i  ^l^■|'.ss 


mean  nuthin.t,',  <>i  cnurso.  excijit  tli.it  the  wliclc  t;rain  wln-n  t\i! 
would  make  less  milk  than  thf  rcfiix.'  wduKl  make  after  the 
starch  ami  suj^jar  were  extracted.  Till-.,  of  course,  is  ah~urd, 
and  no  one  with  anv  understanding,'  (jf  the  subject  could  make 
such  a  statement.  The  whole  fjr.iin,  of  course,  contains  all  the 
protein  that  the  refuse  could  possibly  contain;  in  addition  to 
which  it  Contains  starch.  Since  starch  is  an  important  element 
of  fooil  value,  the  whole  is  fjreatcr  than  a  part  in  this  as  in  other 
cases.  In  fact,  the  most  of  the  feedinj,'  value  of  grain  is  in  the 
starch  rather  than  in  the  protein,  aIthou},di  the  commercial  value 
per  pound  of  protein  is  higher  than  that  of  starch.  This  is  more 
than  compensated  by  the  fact  that  there  are  more  pounds  of 
starch  than  of  protein  in  a  bushel  of  grain. 

Figuring  on  protein  \alues  alone  led  Messrs.  Kellogg  and 
Taylor,  in  their  (itherwi^e  vahiaiile  lii'ok  on  tlie  Fooil  Priih- 
Iriii.^  to  Conclude:  "()b\iously  there  is  from  the  nutritional 
jxiint  ('f  view  little  loss  wjien  barky  is  employed  in  the  manu- 
facture of  beer  and  the  residue  fed  to  di  iiiiesticated  animals  con- 
trasted with  the  results  ni  direct  feeding  of  the  barley  to  the 
animals." 

On  t!ie  other  liand,  1-awe-  and  fiilbert  of  the  Rothamstead 
Station  {  f\(itlh!nist(.\iil  Memoirs,  XCl.  l\  ).  after  experimenting 
with  tiialt,  conclude: 

.\  K'lviri  wciglit  of  barley  is  more  productive  lMith  of  the  milk  of  cows 
and  of  the  increase  in  live  weight  of  fattening  animRls  than  the  amount  of 
malt  anil  malt  sprouts  that  woulc!  he  produced  from  it.  .  .  .  Irrespective  of 
economy,  malt  is  undoubtedly  a  very  pood  food  for  stock;  and  conniion 
txpericiice  seems  'o  show  that  a  certain  amount  of  it  is  beneficial  ...  to 
ynunp  .ir  weakly  animals,  or  in  niakint;  up  for  exhibition  or  sale;  tha*  is, 
V.  ben  the  object  is  to  produce  a  particular  rcMilt.  irrespective  of  iconom\.- 


the  feeding  of  dairy  cattle.  <listillers'  grains  are  worth  three  times  as  mucli 
as  corn,  as  they  furiiisb  three  times  as  much  protein,  and  protein  is  the 
essential  nutrient  for  milk  making.  Tl.us,  while  the  bulk,  the  weitilit.  is 
reduced  to  one-third,  the  value  as  a  dairy  feed  is  increased  inversely.  If 
milk,  then,  is  one  of  the  most  impc.rlant  of  human  foods,  it  woulil  sei  m  that 
there  could  be  no  economic  loss  in  taking  at  least  one  per  cent  of  the  ci'rn 
crop  and  cmivertinn  it  into  distillers'  grains,  quite  aside  from  any  argununt 
concerning  the  value  of  the  distillate  itself.  " 

>  New  V.irk,  1917.     Page  3)6. 

-Qu.ilol  b\    W.  .\.  Heiit>      ,'/'.  cit.,  .    ge  W 


i.KEAT    r.KlTAIN 


31 


Soniethitig  depends  uiicii  tlie  (luestidii  as  to  which  poHcy  L 
pursued,  that  is,  upon  tlie  (|ue>tir)n  whether  the  feeding  of  the 
entire  grain  to  animals  is  for  the  purpose  of  increasing  the  num- 
ber of  animals  and  animal  products,  tir  whetiier  it  is  to  displace 
an  ec|uivalent  ((uantity  of  other  feeds  in  maintaining  the  same 
number  of  animals  aiul  producing  the  same  quantity  of  animal 
protlucts.  If  the  entire  grain  now  used  in  the  manufacture  of 
alcoholic  drinks  were  fed  to  animals,  it  would  maintain  more 
animals  than  can  he  maintained  hy  feeding  the  refuse  alone. 
If  this  merely  means  more  animals  and  more  animal  products, 
there  would  he  saved  only  the  additional  animal  food.  If  the 
same  number  of  animals  were  maintained,  and  the  whole  grain 
fed  to  them,  an  eciual  amount  of  other  grain  would  he  available 
for  human  consum[)tic)n.  In  the  latter  case  the  effect  on  the 
food  supply  would  be  identical  with  the  effect  when  the  grain 
is  itself  used  for  direct  human  consumption.  The  identity  of 
the  grain  used  is  a  matter  of  inilitference  from  the  standpoint 
of  the  food  supply.  It  is  a  question-  of  kind  and  (juantity  used. 
li  the  closing  of  the  distilleries  and  breweries  did  not  increase 
the  total  runount  of  grain  fed  to  animals,  it  would  necessarily 
increase  the  ruuount  available  for  other  purjxises  than  the  feed- 
ing of  animals.  Presumably  this  increase  would  be  available 
for  human  consum[)tion  in  the  form  of  flour,  cereal,  starch  or 
glucose. 

In  the  manufacture  of  starch  and  glucose  from  grain,  only 
the  starch  is  extracted  and  all  ttie  protein  and  fat  are  left  in 
the  residue.'-  In  this  respect  there  is  a  closer  analogy  between 
the  manufacture  of  these  products  and  the  manufacture  of  al- 
cohol than  there  is  between  the  manufacture  of  flour  or  cereal 
and  the  manufacture  of  alcohol.  Since  all  the  protein  is  left  in 
the  residue  from  the  starch  and  g''  factories,  there  is  fully 

as   much   protein  available    for  ,  ,'    deeding   when   grain   is 

used   for  these  purposes  as  is  avauaiiK   when  it  is  used  in  the 

'  r/.  Whitmnn  Howard  Jordan:  TIw  I\t-di>ui  of  Animiils.  New  York, 
1901.     Page  lib. 


32 


nOVF.RNMrNT    (  ONTRdT.    OF    TUI"    LlniclN     lU'^INFSS 


ni;mul';ictiire  of  alcohol.  \\c  tlu-n  have  only  to  compare  the 
food  value  of  the  starch  and  the  glucose  with  that  of  the  alcohol. 

luiough  has  been  said  to  si  v  heyoiul  all  doubt  that  the  whole 
grain  has  more  nutriti\e  vali.  for  hiuiian  con>uinptiun  when  a 
part  of  it  is  luade  irto  f^our,  cereal,  starch,  or  glucose  and  the 
residue  fed  to  animals  than  when  it  is  used  in  the  making  of 
alcohol  and  tlie  residue  is  leil.  It  is  also  certain  that  when  the 
whole  grain  is  fed  to  animals  it  has  more  feeding  value  than 
the  ])art  which  remains  after  the  process  of  brewing  or  dis- 
tilling. If  llie  wiiole  grain  were  available  for  the  feeding  of 
animals,  more  food  producing  animals  could  be  su[>porte(!  than 
can  be  sup])orted  on  the  residue,  or  else,  the  same  number  of 
animals  could  be  fed,  in  which  case  more  grain  would  then  be 
available  for  direct  human  consumption. 

It  is  well  known  that  there  is  ;i  loss  of  nutritive  value  when 
food  suitable  for  human  consumption  is  fed  to  animals  for  the 
purpose  of  producing  animal  products.  That  is  to  say,  the 
nutritive  value  of  a  given  amount  of  grain  is  greater  than  that 
of  tile  milk  or  meat  which  it  will  produce  when  it  is  fed  to 
animals.  Therefore,  if  tlie  starch  saved  from  the  breweries 
and  distilleries  were  used  to  add  to  our  total  production  of  milk 
or  meat,  the  added  milk  anil  meat  would  have  less  nutritive 
value  than  the  starch  itself.  If,  however,  the  starch  is  not  used 
to  increase  our  i)rodiiction  of  milk  and  meat,  but  only  to  dis- 
place other  grain  feeds,  the  whole  of  these  other  grains  is  saved. 
While  it  is  clear  that  there  is  some  saving  in  either  case,  the 
mnottnt  f)f  saving,  in  terms  of  human  nutrients,  depends  there- 
fore upon  whether  it  adils  to  our  supply  of  starch  on  the  one 
hand  or  to  our  supjjly  of  animal  fooils  <in  the  other. 

Jordan  in  his  work  on  The  I'd-iliiui  of  .Iniiihils^  gives  the 
following  table  showing  the  amount  of  human  food  produced 
by  100  [)ounds  of  digestit)Ie  organic  matter  in  an  animal  ration, 
when  fed  to  ditterent  animals: 

'  Op.  i-it.,  pages  405,  406. 


r.UnAT    liKITAIX 


33 


RELATION'    OF    FOOD    TO    PKOUfCT 

rR'inirFn  by   l''n   I.bs, 

Illl.tL^  1  IBE-K    <  'Rl.ASlL 

Matt  eb  in  Rai  p^n 
Markrialilc         IMil.lr 

His.  \\» 

Milk,  Kfiieral  average    1.39.0  18  0 

Milk.  Xevv  ^'(irk  cxperimems   158.7  _'n  (> 

Clu-e.-ii-.   Krccii    14  8  '».4 

Hiitter   ().4  5,44 

Steers.   K<-''ieral   average,   live   wei.iiht    l.i.5 

Steers,  liiwa,  live  weight  Id  8 

Steers,  Kansas,  liv    weight  1_',4 

Steer.s,   Maine,   Ijvi.   weight   15,(1 

Steers,   general   average,   carcass    8..i  i  "5 

Steers,   I'uva,   car'-5ss    1117  ^  ?<< 

Steers,   Kansas,   carcass    7,6  2  52 

Steers,   Maine,   carcass 8  7  J.K4 

Sheep  and  lamlis,  general  average,  live  weight ].V) 

Lanihs,   Inwa,  live  weight    17.8 

Sheep  and  lamhs,  general  average,  carcass    7.0  J  (id 

Latnhs,    Iowa,    carcass    9.6  o.25 

Swine,  general  average,   live  weight    ,30.4 

Swine,   Iowa,   live   weight    ,3.!.0 

Swine,   general   average,    carcass _'5,0  15,6 

I'owl,   small,  live  weight    l'y.6 

Fowl,  dressed  carcass,  average   15  6  4.J 

Broilers,   live  weight   J8,7 

Broilers,  dressed  carcass   2,1.8  o  5 

Kggs    19.6  5.1 

On  j)a,s(c  20  of  this  monoj^^raph  it  was  shown  that  3.044,- 
ir)S,.SOr)  pounds  of  Krr.in  were  nscd  in  the  hrowin,L,'  and  dis- 
tilling industries  in  i\w  I'nitcd  Kint^dmn  diirinj;  tlie  vear  end- 
ing September  30,  Un3.  Mow  inmli  mure  fnod  in  the  wav 
of  anim;  iroduct.s  would  this  have  ()roduced  if  the  whole  grain 
had  been  fed  to  animals,  than  when  only  the  refuse  was  fed? 
The  dairy  cow  is,  according  to  the  above  table,  the  most  effi- 
cient animal  for  turning  animal  feed  into  a  human  food,  but 
the  food  elements  in  milk  are  mainly  protein,  fat,  and  sugar. 
The  protein  in  the  milk  is  apparently  derived  e.xclusively  from 
tile  protein  in  the  feed.  Therefore,  comparatively  little  more 
jirotein  could  be  produced  by  feeding  the  whole  grain  than  by 
feeding  the  refuse,  since  the  refuse  contains  most  of  the  protein. 
The  butter  fat  and  the  milk  sugar,  however,  are  derived  largely 
from  the  starches  and  sugars  in  the  animals'  feed.  If  protein 
were  the  only  desirable  food  element  in  the  milk,  it  would  make 


■<^    ^a 


34 


GOVKHN.MKN  f    (OMKOI.    I'l-      lUi:    l.lnri»K    IHSINKSS 


link'  iliffiri'iici.-  wIr'IIkt  till'  \vli"le  'rain  wtTc  frd  nr  cnly  the 
rcin>c;  but  fats  ni  all  kinds  ai\  nunc  as  scarce  in  the  Cdunlrus 
at  war  as  arc  prctiins.  It  is,  thfrctore,  (luite  as  dfsirahlc  that 
the  Mijiplv  nf  butler  be  increased  as  that  tlie  supjily  of  cheese, 
which  c  .mains  the  protein  of  milk,  .should  be  increased.  Subse- 
(|uem  experience  in  iMi^land  ha-  shown  that  butter  is  one  of 
the  ^larcesl  of  all  articles  of  food.  I'or  masses  of  the  people 
it  has  been  practically  unattainable  since  the  war  be'^an.  How- 
ever, if  tlie  whole  ^rain  were  feil  and  certain  other  forms  of 
feed  rich  in  protein  were  added  to  balance  up  the  ration,  a  con- 
siilerable  increase  in  the  cheese  itself  would  result.  In  no  case 
is  this  to  be  understood  as  an  argument  in  favor  of  feedini: 
animals  <,n  a  ration  of  pure  starch.  It  is  only  a  calculation  to 
show  what  would  result  if  the  starch  destroyed  ut  brewin.t;  and 
rlistillint;  were  saved  and  added  to  the  other  feeds  available  for 
animals  in  the  I'nited  Kin,i,'dom. 

About  65  per  cent  of  the  i)arley  kernel  and  67  per*  cent  of  the 
rye  kerr.el  are  in  tl-.e  form  of  starch.'  .\[)i)ro\im:itely  11  per 
cent  of  this  .iL;rain.  even  in  the  dry  stale,  is  water.-  After  allowin.i; 
for  the  starch  which  the  brewer  and  distiller  fad  to  extract  and 
which  therefore  remains  in  the  refuse,  it  appcis  that  between  40 
per  cent  and  45  per  cent  of  the  wei<d-,t  of  the  s,'rain  represents 
the  loss  of  starch.  Forty  per  cent  of  the  total  j,'rain  used  in 
brew  i!i,i;  and  distillinj,'  would  be  1,_' 17,667,40.'.  1  f  this  were  fed  to 
cows  in  a  proper  ration  it  should  have  produced  a  considerable 
addition  to  the  butter  supply.  According:  to  Jordan's  table,  100 
pounds  of  digestible  or},'anic  matter  in  the  ration  of  the  cow  pro- 
duces a  little  over  6  potmds  of  butter.  Assuming  that  100  pounds 
(.f  starch  will  make  6  [Miunds  of  butter,  we  find  that  the  starch 
used  in  inakinj,'  alcohol  in  the  United  Kingdom  would  make  a 
tot.al  of  73.060,044  pounds  of  butter,  or  a  little  over  a  p-oai,,! 
and  a  half  apiece  for  every  man,  woman  and  child  in  the  United 
Kinirdom. 

When  fed  to  swine,  however,  the  starch  would  probably  not 

'  ?ec  Jordan  :  of-  ''f .  P3ge  57. 
'■^  /^id.'.  page  4.^4. 


(JKKAr    lilUTAIX 


35 


add  anytliing  to  the  protein  in  the  carcasses.  It  would  add  iin- 
doubtedly  t(i  the  fat,  wliich  lias  a  very  larjje  element  in  the  inod 
value  'if  pork  pnuluct'^.  According  to  the  authority  just  cited, 
100  pounds  of  dij^estihle  orj,'anic  matter  in  the  animal  ration 
would  add  a  little  over  15  pounds  to  the  edible  solids  in  the  pork 
products.  Assuming  that  7  pounds  of  this  is  in  the  form  of  fat, 
we  find  that  the  starch  used  in  the  mani.iacture  of  alcohol  in 
the  United  Kingdom  would  make,  if  fed  to  hogs,  a  total  of 
85,236,718  pounds  of  pork  fat.  Xo  other  animal  is  so  efificient 
in  turning  feed  into  human  food.  When  fed  to  steers,  on  the 
same  basis  of  calculation,  this  starcli  would  produce  only  about 
10,000.000  pounds  of  human  food  in  the  form  of  beef  fat. 

In  time  of  threatened  famine  or  even  a  serious  food  shortage, 
it  is  highly  improbalile  that  an  increased  supply  of  grain  thus 
made  available  would  be  used  up  in  the  production  of  animal 
food;  since,  as  stated  above,  the  food  value  of  the  grain  for 
direct  Innian  consumption  is  nnicli  greater  than  the  food  valae 
of  the  animal  product  winch  it  will  produce,  it  is  quite  certain 
that  a  policy  of  food  conservation  would  reduce  rather  than  in- 
crease the  number  of  anim;)ls  kept  and  the  (juantity  of  animal 
products  produced.  This  brings  us  back  to  the  earlier  basis  of 
calculation.  This  means  that  the  grain  saved  from  breweries 
and  distilleries,  at  least  the  edible  portions  (jf  it,  would  be  used 
for  direct  human  consumption  in  the  form  of  flour,  cereal,  starch 
and  glucose. 

As  to  the  waste  caused  by  drunkenness  or  the  inefficiency 
which  is  due  to  excessive  drinking  on  the  part  of  workers,  it 
is  difficult  to  arrive  at  any  satisfactory  measurements.  As  shown 
on  page  21,  the  total  convictions  fcjr  drunkenness  in  the  course 
of  the  last  year  preceding  ihe  war  were  234.571.  Assuming 
that  one  day  was  lost  for  each  c  )nviction  for  drunkenness  and 
dividing  this  by  the  appro.xim^u-  nmnber  of  working  days  in  a 
year,  it  is  ecpial  to  the  working  time  of  78.2  men  for  a  year. 
This,  of  course,  is  not  a  very  large  fraction  of  the  tota!  work- 
ing power  (if  the  whole  population;  bui  this  is  a  considerable 
underestimate  of  the  loss,  as  will  appear  from  several  onsidera- 


.^r, 


;(>\  i-KNMr.N  r  c  un  ria)i.  of  'iiik   i.kjicik    im  sinkss 


tion«.  In  ilu;  tir-^t  \ihu\-,  mw  day  i-  a  I'>\v  otiinate  "l"  the  time 
lust  icr  (.■viTv  i.-i.ii\  ii'lii'ii.  In  tlic  >ui'iiii(l  place,  iiu  tij,'uri'S  are 
availahk'  U>  slmw  the  Inss  vt  time  hy  people  who  arc  drimk,  but 
not  convicted  before  a  court.  In  the  third  place,  it  lakes  no 
account  of  the  lo.-^  in  skill  and  efliciency  on  the  part  of  men  who 
are  at  work  but  who>e  etlicieiic/  is  somewhat  ir'i[>aire(l  by  reason 
of  their  havinj^  partaken  too  freely  of  alcohol.  Tn  a  kitul  of 
work  requiring  such  care,  skill  and  re-poii>iiiility  as  tiie  mak- 
ing of  munitions,  this  item  of  los.,  may  easily  outweif,'h  all  (jther.s. 
In  the  fourth  jjlace,  it  leaves  out  of  accunt  the  underminin.i,'  of 
the  health,  and  the  con>e(iuent  increase  of  sickness  ami'n.i;  those 
who  drink  pretty  rej^ularly,  but  who  are  sekkmi  or  never  in  a 
state  even  bordering  on  drunkenness.  In  the  fifth  place,  it  fur- 
nishes no  indication  as  to  the  loss  in  efficiency  in  succeeding 
•generations  due  to  the  bad  home  conditi(jns  in  the  families  of 
the  haril  drinkers. 

If,  in>teail  of  counlinj,'  merely  one  day  of  lost  time  for  every 
convicti<in  for  drunkenness,  we  count  two  d;iys,  and  if  we  as- 
sume that  ''or  everv  conviction  tliere  is  at  least  another  case 
which  escapes  conviction  because  it  is  not  found  in  a  disorderly 
cc'udition  in  a  pulilic  place,  we  should  nudlipl\-  by  four  the  total 
number  of  da\s  lost  under  our  jirevious  calculation.  Instead  of 
a  loss  of  the  workitv.,'  time  of  7X2  men  for  a  full  year,  it  now 
becomes  a  loss  of  the  workin;.;  time  of  3.128  men  for  a  year. 
If  we  continue  by  addin<,'  other  items  of  the  abo\e  enumer.ation, 
the  figures  mount  hijiher  and  hiijher.  There  is,  however,  no 
knov.'n  method  of  reducing  this  calculation  to  the  test  of  meas- 
ured and  recorded  facts. 

To  offset  this  loss,  however,  there  is  the  imdouhled  vaV..>  of 
drink  as  a  fool  killer.  In  the  long  run.  and  in  normal  times, 
unstable  natures  mav  gradii.ally  be  weeded  out  of  the  i)opul;ition 
through  the  influence  of  any  temptation  which  is  peculiarly 
deadlv  to  such  nauires.  The  orderly  occupation^  of  peace  can 
doubtless  make  little  use  of  such  natures  and  if  they  .are  re- 
moved to  give  room  for  more  orderly  and  stable  characters,  there 
is  doubtless  some  gain.     Hut  in  time  of  war,  this  is  a  considera- 


i;RK  A  I      llkl'l  A  I  \ 


37 


tinn  iif  link'  value.  IiiipiiNivc  ami  un^talili-  iiatitrus  nia\  lie 
((uitc  as  U'-ahlf  as  tlir  (■nU-rly  and  •-tahlc  niu-s.  The  state  neeiK 
tlieiii  all.  If  it  i.s  to  make  use  if  the  kind  of  nun  whn  can  nm 
withstand  the  dangers  of  drink,  it  nni>l  <  lix  imislv  protect  them 
against  that  daiif^er  which  is  opecially  deadly  to  them. 

So  inneli  has  heen  made  in  the  past  of  the  revenue  which 
various  f,'overnment->  derive  from  li(|iior  ta\e~.  that  the  fincition 
can  not  he  ij,'nored  in  a  tliscu^'^ion  oi  thi^  kind,  The  aihimtage 
of  the  licjuor  ta.x,  however,  is  not  in  ;uiy  .--ensc  an  economic  ad- 
vantai,'e.  It  is  merely  an  illu>tr;ition  of  (Jolhert's  famous  ma.xim 
that  "ta.xation  is  the  art  of  K^^tt'tiK  t'le  r.iaxinunn  amount  of 
fer.thers  with  the  minimum  amount  of  s(|uawkint;."  If  we  dis- 
tinj,'uish  --harply  between  the  economic  and  the  demafjogic  as- 
pects of  the  ([uestion,  it  is  perfectly  obvious  that  the  buvinj;  of 
alcoholic  liquor  does  not  create  an}-  new  wealth.  The  buyer  of 
a  drink  ni.iy  be  told  that  a  certain  fraction  of  the  price  which 
he  pays  will  go  into  the  coffers  of  the  state.  If  he  is  very 
an.xious  for  the  drink,  he  may  consent  to  pay  this  tax  to  the 
state  more  willingly  than  he  would  if  asked  to  pay  the  same 
fraction  into  the  coffers  of  the  state  without  getting  the  drink. 
Unless,  however,  the  drink  is  of  some  economic  advantage  to 
him,  he  is  certainly  no  better  off  when  he  pays  his  tax  to  the 
state  in  this  way  than  he  would  be  if  he  paid  it  directly.  If  he 
is  in  some  way  prevented  from  spending  his  monev  on  drink,  he 
will  be  economically  better  off  if  he  is  ta.xed  directlv  the  e((uiva- 
lent  of  the  small  fraction  of  the  price  of  the  drink  which  goes 
to  the  state:  he  would  have  left  in  his  pocket  at  least  the  rest 
of  the  price  of  the  drink. 

This  argument,  of  course,  would  apply  cquallv  well  to  all 
ta.xes  on  luxuries.  The  only  economic  advantage  to  the  country 
from  any  tax  on  luxuries  is  that  it  tends  to  repress  the  con- 
stmiption  of  luxuries.  Whether  the  luxury  be  in  the  form  of 
an  alcoholic  drink  or  in  some  other  form  is  a  matter  of  no  con- 
seciuence.  If,  however,  there  are  other  and  more  efifective  ways 
of  repressing  the  consumption  of  the  luxury  in  question,  it  can 
hardly  be  considered  an  economic  loss  to  give  up  a  less  effective 


38 


COV  KKN.MKN  1     <n.\lK(ll.    ul      I  III      I.KIMIK     IllSlNKSS 


iiifthiid  of  n-iirts^ii  111  in  fav'T  of  a  niurc  (.ffcciive  inctlnHl. 
W'luii  the  <lrlil)iTati.  i)ur|)(i>f  i.f  a  luxury  tax  i>  the  rt'pro-ii 'ii 
of  hixurioiis  con>uni[)liiiii,  this  fur:ii>lus  tlu'  podrc^t  kiinl  of  an 
ar),'unu-nt  in  favor  of  uncoiira),'itiK  ll'i-'  continuance  of  luxurious 
con-  iiii]>tiin  in  order  t  >  prwvide  revenue  for  the  state.  Yet 
tii:>  is  the  predicatneiit  in  which  one  is  jjlaced  who  arj^ues  lliat 
tiiere  is  any  economic  achantatje  in  deriving  revenue  from  tlie 
niaiinfacture  and  sale  of  an  alcoholic  luxury. 

From  the  [lurely  denia),'o},'ical  jioint  of  view,  however,  the 
govenunent,  as  tiislinci  from  tlie  ])eoi)le  who  are  governed,  may 
Sometimes  find  it  necessary  to  resort  to  this  method  of  rai>ing 
revenue.  I'nder  .a  popular  government,  of  course,  there  is  no 
power  of  raising  taxes  except  through  the  consent  of  the  jjeople 
who  pa\-  the  taxes.  If  tliis  consent  can  be  more  easily  secured 
for  one  form  (jf  taxation  than  for  another,  that  may  he  a  gnod 
enough  reason  why  tiie  government  should  propose  tlie  one 
rather  than  the  other  in  normal  times.  If  one  were  advising  the 
government,  one  might  even  jidvise  tlie  use  of  the  one  form  of 
taxation  rather  than  (d  the  other.  That  is,  the  adviser  to  the 
government  might  say,  in  effect,  the  people  are  so  unwise  or  so 
disloy.d  th;it  they  will  n^t  vote  fo.-  direct  ta  'es  nor  will  they 
vote  for  any  candidate  for  ptihlic  oflice  who  proposes  to  tax 
them  directly.  Therefore  the  only  wise  thing  to  do,  since  reve- 
nue is  necessary,  is  to  tax  them  indirectly.  If,  however,  the  ad- 
viser were  not  giving  advice  to  the  government,  but  to  the  people 
themselves  as  to  what  kind  of  a  tax  they  ought  to  support  by 
their  votes,  he  would  have  a  difTercnt  question  altogether.  It 
would  be  rather  absurd  to  say  to  '  •■  people,  you  are  so  very 
unwise  that  you  can  not  see  the  ecoi.  niic  advantage  of  paying  a 
tax  directly,  or  so  disloyal  that  you  will  not  consent  to  it.  but 
you  think  erroneously  that  you  gain  some  advantage  or  bear 
less  burden  when  you  pay  your  taxes  in  the  form  of  an  excise 
on  useless  or  harmful  things  which  you  buy.  Therefore,  vou 
ought  to  go  right  on  buying  these  useless  or  harmful  luxuries 
in  order  to  deceive  yourselves  into  paying  necessary  taxes  to  the 
government,  since  the  government  must  have  revenue  from  one 


CKKA  I     I'.ia  I   \IN 


39 


source  (ir  ;mi'lli<r.  'I'liis,  hnwcviT.  i^  in  i(t\-rt  what  a  t^dnd  maiiv 
self-styled  "iiraitical  men"  are  tellmt,'  the  people,  nut  oiilv  with 
respect  to  excise  <>n  alcoholic  drinks,  hut  with  respect  to  the 
consumption  of  other  nunessenlials. 


CHAPTER    II 
The  Attitude  of  the  PiibHc 

The  (listitictinn  pdintid  <.ut  at  the  close  ..f  the  la=t  cliaptcr 
iK'tweeii  the  ;,'( .\  erniiunt  ami  the  penple  iiiake^  it  iuee>sary  lUr 
us  ti)  find  out  what  the  people  were  >a_viiii,'  and  thiiikinj,',  as  well 
as  what  the  >,'overiuneiU  wa-  d.iinj;  almut  the  \u\uit  (niesti(in. 
-Mr.  Llnyd  (ieorjje  left  U'p  doiiht  as  to  his  own  personal  views  on 
tile  ^ui)ject  '  '.)is  famous  remark,  "We  are  fislitin),'  (iermanv, 
Au-tria,  and  drink,  and,  as  far  as  I  can  see,  the  ^Teatest  of  these 
dea<Ilv  foes  is  drink."  Nevertheless,  as  an  aj;ent  of  >,'overnment, 
he  could  do  nothing'  more  than  the  people  were  willing  to  stand. 
In  the  New  "i'ork  Times  of  June  16,  I'M  5,  Arnold  Bennett  is 
(|Ui4ed  as  saying:  '•The  K"vernment  failed  in  its  attempt  to 
iiandle  the  drink  (juestion.  It  failed  hecause  there  is  no  sufTTicient 
hoily  of  opinion  in  Britain  ahout  alcohol;  it  failed  hecause  as  a 
nation  we  have  never  heen  educated  ahout  alcohol;  and  the  new 
K' ■vernnient  will  fail  for  the  same  reason." 

The  development  of  puhlic  opinion  u()(jn  anv  tf)pic  is  a  verv 
elusive  matter  and  the  process  is  very  difficult  to  descrihe.  The 
attention  given  to  the  drink  question  in  F.n>,dand  as  the  war  pro- 
gressed showed  a  definite  quantitative  increase,  vet  that  increase 
can  not  he  measured.  Some  indication  as  u>  the  rate  of  increase 
can  he  found  iiy  merely  measuring  the  space  given  to  the  drink 
question  in  the  Inde.x  to  the  London  Timci;  from  quarter  to 
quarter.     The  following  curve  shows  the  increase: 


40 


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41 


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Till'  riir\c   L;i\f!i   liil"\s    -lu.w^   ilic  aiiiinint   <<i   s[iai'i'   in    the 
L'liil'  II   rinii's  (liA.iiiil  l.>  /i'r(7'.  a->  a  t'lpic  ilistiiu't  fii'iii  I'niik: 


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While  this  curvi-  fiiriii>!K's  sciiic  iiiihiati"ii  as  ti.  tlu'  amount 
of  attentinn  j^'ivcn  tn  the  suhject,  it  shuw--  ni'iliin^  as  tn  the  ilcvcl- 
opincnt  of  opinidti  fur  or  against  any  jiarticular  policy  or  nu'thoil 
of  liandlinf,^  tho  drink  (|uestion. 

Discussion  was  fir^t  provoked  hy  tiie  Order  in  Council  jjivini; 
the  competent  naval  and  military  authorities  power  to  fnrhid  or 
restrict  the  selling;  of  li(|uor  within  specified  areas.  Any  (/iie 
Cf>uld  see  the  nece~-ity  of  strict  military  <liscipline  and  of  i^ivin^; 
officers  cnnsiderahle  authority  in  its  enforcement.  When  soldiers 
or  sail'-rs  were  likely  to  lie  incapacitated  hy  hein.t:  drunk  at  critical 
times,  no  one  hut  the  most  perverse  could  ohject  if  the  officers 
who  Were  responsiljK'  fur  the  success  of  undertakiuf^s  of  vital 
importance  were  pemiitteil  to  take  such  action  as  would  keep 
their  men  from  petting,'  drunk. 

A  study  of  the  files  of  the  London  Ti.in-s  shows  that  this  was 


(;kka  I    \\K\  I  \r.\ 


43 


the  \  icw  miicially  takiii.     lii  it.-,  i>>iic  t-t   IktnluT   17,   l'M4,  it 
says  of  tlif  luiiixil  ir.iili.': 

It  «ill  ln\.illv  ■.ii|i|inrt  ,ill  rc.i'-'Ui.ilili-  ili-mamls  mado  liy  llioso  who  ,irr 
aiistttralile  firr  tlio  v>t\\  U-iui^  ni  lire  ilcU-iisuc  forces  of  the  couiilr;  ami 
the  m^intrnamc  of  piihlic  nr<l<r.  hut  it  resents  any  attempt  l>y  llin^e  whose 
cihjcct  .iiu!  ami  is  iimhihitiuM  to  ,ii.i1m-  u-.c'  of  a  national  cri«is  to  foist  upon 
the  lotiiiiMiiuty  iiuMMiri-v  miiluly  iiiti  rl.rint;  with  the  riiihti  and  lilicrty  of  the 
piihlic;  ami  it  protests  a^;alnst.  the  miiiosition  of  drastic  re-trictions  without 
any  corresp.indinK  alleviation  of  the  excessive  duties  based  on  asseasmcnts 
arrived  at  in  a  pernul  of  normal  hours  erf  trade. 

Oil  Octi.htT   13  it  said: 

It  IS  a  very  simple  and  moilerate  remedy,  hiit  efTectivc  and  not  resented 
because  it  is  tno<krale.  Hveryhody  vvho  really  knows  our  piihlic  house  popu- 
lalion  is  aware  that  a  Kfi'-it  'li'^il  "f  'Iruiikeniiess  occurs  merely  through 
accumulation.  .\  moderate  curtailment  of  hours  will  stop  this  cause  of 
drunkenness,  whitli  is  the  principal  influence  in  such  cases  as  these  youni; 
men  in  traininjf.  The  ipustioii  of  further  lurtailmenf  has  been  discussed  hy 
Some  henches.  hut  the  decision  is  aKainst  it.  and  prohahly  for  sound  reasons, 
thouKli  special  circuiustaiices  may  in  s,,nie  places  cull  for  specific  nie.isures. 

r)ii  (liK.Inr  _'S  it  |nililisluil  ;m  arliclv  tlllitlcd,  ".\ii  .Nppi'al 
fnr  S"lirii.ty."  in  wliich  1.'T(1  KiicluiKT  ;inil  the  Archhislu  ip  (if 
Cantcrhiiry  ajipcal  U>  tin-  piililic  t.i  lulp  in  in.iintaiiii'ij,'  solirietv 
nmnn.ir  the  snlditTs  in  trainiii),'  iiy  n-frainiii.t,'  (roni  the  pr.nctice 
of  trcatinjj.     Physical  fitness  n instituted  the  li.i^is  .if  the  appeal. 

On  N'l.veinher  13  it  nv^ntiims  the  LeaKiie'  cf  tlie  Khaki  liiittnn, 
founded  hy  the  .Xrch'ieacon  of  Chesterfiild,  whose  we.irers 
ple(l),'e  not  to  stand  an-  one  a  drink  or  to  be  stood  :i  drink  until 
the  war  is  over. 

On  Xovcniher  Ic.,  repardi'":  Lloyd  r.eor>,'e's  proposed  tax  of 
a  "li.ilf|ieiiny  on  the  half  p  i."  it  states  that  the  brewers  sav 
tiuv  will  siiliinit,  Init  liint  at  Ijankriiptcy. 

Mr.  Chamberlain  savs: 

The  h.ilfpenny  on  the  half  pint  nUis  the  other  circumstances  adverse  to 
that  particular  trade — the  absence  >  i'  drinking  at  home  and  the  curtailment 
of  the  hours — will  produce  .15  per  cent  reduction  of  consumption.  I  ask  any 
manufacturer  or  trader  to  say  what  would  he  the  effect  on  his  profits  of  a 
reduction  of  .15  per  cent  in  his  turnover.  [  think  the  Chancellor  will  perhaps 
he  convinced  that  he  is  not  leaving  a  sufficient  margin  to  meet  the  extra  .strain 
thrown  upon  the  trade. 


44 


G()\i.u.\Mi:\T  ((jmkcji.  UK    1  iir.  liquor  lusi.N'r.ss 


On  DfCL'niber  31,  in  an  article  on  "The  Consumption  of  Beer," 
it  say- 

When  111'  :iiaiicellcir  of  the  Exchciiucr  init  his  extra  tax  on  beer  to  hel]) 
pay  for  tlie  war,  I'e  calculated  that  the  fall  in  consumption  on  acccjunt  uf  the 
increased  price  would  lie  ahoiit  2J  per  cent. 

The  immediate  effect  was  a  drop  in  consumption  of  close  on  Wl  per  cent. 
Many  of  the  brewers  forthwith  reduced  their  productiiu. 

Later  report.s  from  the  country  --bow  a  notable  rise  in  consumption,  which 
varies  considerably,  of  course.  accordr.iR  t.i  the  nature  of  the  place  and  tne 
density  of  the  population.  lUit  in  manufacturing  centers  the  attachment  of 
the  average  working  man  to  his  "pint"  has  overcome  the  fit  of  economy  which 
seized  liim  when  the  price  went  up  and  there  is  almost  as  much  beer  being 
consumed  as  ever. 

hi  Its  issue  of  M.irch  2.  V^\5.  it  comments  on  Mr.  Lloyd 
George's  speech  on  drink,  as  follows: 

Mr.  Lloyd  George's  remarks  in  his  P.aiicnr  speech  on  the  drink  qrestion 
in  relation  to  our  industrial  productivity  were  freely  discussed  in  the  lobby 
yesterday  It  is  understood  that  the  ChaiucU.ir  of  the  Exchequer  intended 
his  remarks  to  be  regarded  as  a  warniiiK  rather  than  as  a  threat.  The  Kov- 
ernment  have  nc  i"imecliate  intention  of  introdncinir  fresh  legislation  for 
restricting  the  hours  during  which  intoxicating;  liquor  may  be  s<d(l.  It  should, 
however,  be  borne  in  mind  that  the  Defense  of  the  Realm  .\ct  entrusts  the 
responsible  authorities  with  very  wide  powers  in  lespect  of  licensed  premises 
which  have  by  no  tneans  been  fully  exercised  so  far.  The  existing  war 
restrictions  have  been  chiefly  imposed  in  the  imcrests  of  our  soldiers  and 
sailors.  Ministers,  however,  have  been  greatly  impressed  by  the  moral  gain 
achieved  by  the  Russian  suppression  of  the  vodka,  and  the  significance  of 
Lloyd  George's  words  lie:  in  the  suggestion  that  future  regulation  of  the 
liquor  traffic  may  be  applied  in  the  interests  of  the  civil  population. 

On  March  23,  lOl.;.  it  published  a  letter  signed  "Working 
riass,"  protesting  against  the  implication  that  the  working  classes 
were  greater  sinners  than  others  in  the  matter  of  drink: 

In  his  proposals  with  reuard  to  drinking  facilities.  Mr.  Lloyd  George'.? 
magnificent  good  sense  has  for  once  forsaken  him.  In  "certain  areas"  the 
public  houses  are  to  be  opened  only  during  limited  hours.  T  belong  to  the 
working  classes,  and  as  one  of  their  own  class  who  know  them  well  I  ven- 
rure  to  suggest  that  the  truer  way  to  win  their  support  is  to  ask  them  in 
submit  to  a  restriction  which  the  whole  commnnitv  accept.  This  is  no  "tem- 
perance question"  It  is  a  matter  of  eciual  sacrifice  on  the  part  of  all  for 
the  sake  of  the  n.-<.tion  in  war  time.  {Of  course  the  brewers,  distillers  and 
iinbbcans  must   be  adetjuatelv  compensated.)      The  working  classes   feel   that 


C.KF.AT    lUUTAIN' 


45 


tlie  aristocracy  of  EiiKlaiul  is  thnrouKlily  playing  the  Rame  in  this  war,  but 
tliey  fc  1  that  the  merchants,  shippers,  and  manufacturers  are  out  innstly 
for  self.  This  may  he  a  harsh  judgment.  But  we  have  to  take  the  facts  as 
they  are.  No  class  will  be  more  loyal  than  the  working  classes  to  any 
common  restrictions  affecting  all  alike.  They  will  resent  being  pilloried  for 
special  treatment.  Now  the  govenunent  is  doubtless  acting  as  far  as  it 
thinks  public  opinion  will  support  it  and  what  tlie  situation  demands  is  a  new- 
public  opinion  Will  the  aristocracy  not  give  us  another  lead?  If  the  prin- 
cipal social  and  political  clubs  in  L mdon  voluntarily  agreed,  and  that  quickly, 
to  accept  the  same  limitations  with  regard  to  the  hours  at  which  ilrinks  may 
he  served  as  the  Chancellor  of  the  Exchequer  proposes  for  workingmen,  it 
wiiuld  do  much  to  make  the  movement  a  national  one. 

On  Mardi  30,  in  an  article  entitled  "Conference  on  Drink," 
it  savs: 


.\    deputation    representative   of    the    leading    shipbuilding    firms    in    the 


countrv  wa: 


s  received  \esterdav  at  tlie  Treas 


bv  the  Chancellor  of  the  Ex- 


chequ 


and    Seer 


for    Scotia 


The   deputatii 


cretary 

urging  that  in  order  to  meet  the  national  requirements  at  the  present  time 
and  the  urgent  necessities  of  the  position,  there  should  be  a  total  prohibition 
during  the  period  of  the  war  of  the  sale  of  excisable  liquors.  It  was  rep- 
resented by  them  that  mere  restriction  of  hours,  or  even  total  prohibition 
within  certain  areas,  was  not  sulticient,  as  certain  classes  wtnild  be  entirely 
unaffected,  and  it  was  felt  by  the  deputation  that  total  prohibition  should 
apply  as  an  emergency  war  measure  not  only  to  public  bouses,  liut  to  private 
clubs  and  other  licensed  preinises.  so  as  to  operate  e(pi.i!ly  for  all  classes  of 
tlie  com-Tiunity.  In  putting  forward  these  views,  those  who  spoke  on  behalf 
of  the  deputation  expressed  themselves  as  satisfied  that  there  was  a  general 
consensus  of  opinuin  on  the  part  of  the  workers  favorable  to  total  prohibition 
along  the  lines  indicated. 

It  was  stated  that  in  many  cases  the  number  of  hours  being  worked  was 
actually  less  than  before  the  war.  and  in  spite  of  Sunda\  labor  and  all  otlur 
time,  the  total  time  worked  on  the  average  in  almost  all  yards  was  below  the 
normal  number  of  hours  per  week.  In  spite  of  working  night  and  day,  seven 
days  a  week,  less  productiveness  was  being  secured  from  the  men.  The 
deputation  was  of  opinion  that  this  was  principally  due  to  the  question  of 
drink.     .     .     . 

The  deputation  drew  attentinu  to  tlie  example  set  by  Russia  and  France, 
and  urgo<l  upon  the  Chancellor  of  the  Exchequer  the  need  of  strong  and 
immefliate  action. 

Mr.  Lloyd  George  in  his  reply  said  that  nothing  but  root  and  branch 
r.iethods  would  be  of  the  slightest  avail  in  rloaling  with  this  evil.     .     .     . 

He  added  that  success  in  this  war  was  now  purely  a  question  of  muni- 
tions, and  mentioned  that  the  King  ha<l  permitted  him  to  say  that  his  Majesty 
was  very  deeply  concerned  on  the  question. 


46 


GOVF.KN'MFNT    COXTROL   OF    THK    l.iyrf)l<    ItlSINKSS 


In  the  issue  of  March  31,  the  Newcastle  cnrrespdiident  says: 

The  r.oilcriiiakers"  Si)cicty  has  lost  no  time  in  replying  to  the  remarks 
ma<le  at  the  conference  on  drink  and  armaments  Monday  .  .  .  the  tales 
told  hy  the  ShipbuiUlinR  l-'ederation  arc  the  same  old  niisrepresetitatinns, 
ey '-'derations  and  contrailictinns  that  have  been  lieard  from  them  many 
times.  .  .  .  This  wholly  nnjustifia'.ile  attack  will  do  more  than  all  the 
drink  in  tlie  country  t^  diminisli  output. 

On  Marcii  31,  1013,  is  the  following  editorial  comment: 

The  question  of  Inst  time  in  the  workshop  is  the  urgent  problem  of  the 
moment.  Just  at  present  the  cry  is  that  drink  exiilains  the  whole  thing  and 
that  some  drastic,  but  as  yet  undefmed.  step  must  be  taken  to  deal  with  the 
drink  traffic.  .  .  .  The  deputation  of  shipbuilders  who  waited  on  Mr. 
Lloyd  George  laid  the  whole  blame  upon  it.  it  we  understand  them  correctly 
and  they  are  confirmed  by  Dr.  Charles  Harford,  secretary  of  the  committee 
appointed  to  investigate  the  subject  at  the  conference  summoned  by  the 
.Vrchbishop  of  Canterbury  in  the  autumn.  It  is  not  necessary  to  agree  with 
all  he  says  in  order  to  admit  the  magnitude  of  the  evil  It  is  denied  by  no 
one  anil  only  a  few  days  ago,  it  was  urged  upon  the  government  b>  the  rep- 
resentatives of  one  of  the  great  trade  unions.  In  the  letter  to  Mr.  Lloyd 
(ieorge  published  hiNt  week  from  Mr.  Gosling  and  Mr.  R.  Williams  of  the 
National  Transportation  Workers  I'ederation.  the  effect  of  excessive  drink- 
ing on  the  output  of  niunitiiins  of  war  was  emphasized  in  very  strong  terms. 
.About  the  remedy  there  i^,  unforiniiately,  no  such  agreement.  Many  pro- 
posals are  made  from  general  iirohibition  <lownward.  Mr.  Lloyd  George 
rather  hinted  at  general  proliibition  in  his  reply  to  the  deputation  on  Monday, 
but  we  gather  that  the  government  has  as  yet  come  to  no  very  definite  opinion 
beyond  the  urgent  importance,  which  indeed  is  manifest,  of  grappling  with 
the  problem  at  once.  We  presume  that  at  any  rate  they  recognize  the  neces- 
sity of  dealing  with  clubs  as  well  as  public  houses  and  applying  any  measure 
impartially  to  all  classes.  If  both  these  conditions  were  not  fulfille<l.  no 
measure  would  have  the  slightest  success;  it  would  throw  a  great  number  of 
persons  out  of  work  and  excite  general  resentment  for  nothing.  The  oidy 
chance  of  its  acceptance  by  the  men  whom  it  is  intended  to  influence  would 
be  for  others  to  set  an  example  for  those  in  high  places.  If  they  continue 
to  drnik  at  the  club  and  at  home,  so  will  the  Clyde  and  T\ne  workmen, 
(an  not  we  inaugurate  such  legislation  as  may  be  called  by  a  self-denying 
<irdinance  voluntarily  accepted  for  the  term  of  the  war  by  those  whose  busi- 
ness it  is  to  set  a  good  example  to  the  nation? 


In  the  same  issne,   Mr.   H.  G.   Robinson,   Secretary  of  the 
Licensed  N'ictualers"  National  Defense  League,  said: 

Mr.   Lloyd   George   told   the   deputation   made   by   the   Chancellor   of    the 
I'.xchequer  that  no  statesman  could  go  in  advance  of  public  opinion,  and  in 


GREAT    BKIT.MX 


47 


tl;at  express1.>n  alone  there  is  iiidicatinn  of  the  danger  that  would  inevitaMy 
fnllnw  any  Hitempt  to  introduce  a  measure  for  national  prohibition.  It  must 
he  home  in  niMid  that  Mr.  Lloyd  George  on  Monday  heard  simply  the  views 
of  the  employers'  representatives.  The  views  and  feelings  which  exist  among 
the  general  body  of  workers  have  not  yet  been  voiced.  Before  the  govern- 
ment intervenes  to  ask  for  special  legislation,  or  for  the  issuing  of  an  order 
by  the  Privy  Council  with  the  sanction  of  his  Majesty.  Ixith  sides  of  the 
([uestion  I  have  no  doubt  will  be  carefully  considered  and  the  evidence  that 
can  be  produced  by  employers  and  employed  will  be  sifted  thoroughly. 

Speaking  as  the  representative  of  many  thousands  of  licensed  victualers, 
I  can  say  honestly  that  throughout  England  and  Wales  we  have  assured  the 
army  that  as  far  as  lies  in  our  power  we  will  prevent  such  mischief  arising 
as  tliat  which  is  now  causing  so  much  anxiety.  To  no  one  has  the  complaint 
made  by  the  deputation  caused  m.>re  regret  than  to  licensed  victualers,  who 
feel  that  a  small  number  of  men  are  not  only  bringing  disgrace  upcn  their 
own  class,  but  are  responsible  for  serious  injury  to  a  legitimate  trade. 

In  the  issue  of  March  31  are  also  contained  comments  from 
different  localities  on  this  matter  of  prohibition,  which  may  be 
summarized  as  follows: 

Slu-ffiiii—The  attitude  both  on  the  part  of  the  employers  and  the  men's 
leaders  is,  generally  speaking,  strongly  opp<ised  to  total  prohibition. 

.Uunf/i«(.-r.— Inquirie.s  in  engineering  quarters  show  that  there  is  no 
general  demand  in"  the  city  for  the  prohibition  of  drinking  facilities. 

«i>Hii)i;;/m»i.— Opinion  with  regard  to  the  hours  of  public  houses  is 
against  total  closing,  but  in  favor  of  curtailment. 

Parrow.—.\  fairly  good  reception  has  been  given  to  the  suggestion  that 
during  the  continuance  of  the  war  all  pulx-houses  in  districts  where  gov- 
ernment contracts  are  being  turned  out  shad  be  totally  closed.  .\t  no  town 
in  the  country  has  such  bad  time  been  made  by  the  men  who  have  preferred 
to  spend  their  time  in  public  houses.  It  is  felt  that  total  prohibition  will 
lead  to  a  very  great  increase  in  production  of  munitions  of  war.  Publicans 
profess  to  be  ready  to  accept  the  scheme  if  they  are  to  receive  compensation 
for  loss  of  trade. 


The  issue  of  April  2  contains  statements  from  the  following 
places: 

Cardiff.— Vor  some  months  hotels  and  clubs  have  been  closed  at  9  p.m. 
and  it  is  generally  considered  that  this  is  a  reasonable  and  satisfactory 
arrangement. 

r/viHo«//i.— The  nine  o'clock  closing  is  working  satisfactorily.  Some 
believe  it  would  he  an  advantage  if  the  public  houses  were  not  opened  early 
in  the  morning,  but  generally  speaking  there  are  few  complaints  of  lost 
time  through  drinking. 


4S 


<;0\EK.\MENT    CONTKOL   OK    THK    I.lOrOR    IU<;|M- 


lAvi'rcoot. — Mr.  Wright,  President  of  the  I.ii-eiisfd  X'ictiialers'  Associa- 
tion of  this  city  said  at  a  meeting  yesterday  that  the  suKKCsted  prohibition 
of  drinking  during  the  war  was  too  drastic  a  step  to  be  successful  and  that 
the  present  arrangement  should  be  givou  a  fair  trial  first. 

\' civ<astle-upon-l ync. — Public  opinion  is  hard  to  gauge.  Tlie  licensed 
trade  is  silent  for  patriotic  reasons.  Employers  generally  favor  prohibition, 
but  the  men's  leaders  believe  that  further  curtailment  of  hours  should  be 
tried  before  prohibition  is  resorted  to. 

Leeds. — No  strong  feeling  is  expressed  either  far  prohibition  or  rediced 
hours. 

Belfast. — There  is  not'  the  same  excessive  drinking  here  by  workmen  on 
war  contracts  as  apparently  exists  in  other  centres.  There  is  no  general 
desire  for  prohibition,  but  opinion  is  strongly  in  favor  of  restricting  hcuirs. 

Clasgou: — The  alternative  suggested  to  total  prohibition  in  the  Clyde  dis- 
trict is  restriction  of  hours. 

Warwickshire.— Tht  opinion  of  the  miner's  agent  is  strongly  against  total 
prohibition  as  unfair  to  the  working  classes,  very  few  of  whom  neglected 
their  work  through  drink. 

Sauthantf'ton. — The  Southampton  Trades  and  Labor  Council,  representing 
nearly  20.000  organized  workers,  has  passed  a  resolution  against  the  proposed 
prohibition  of  the  sale  .  ''  itoxicating  licpiors  to  the  working  classes.  It  was 
admitted  that  a  few  lost  time  through  drink,  but  that  the  great  majoriry- 
should  not  be  penalized  on  their  account. 


Tliere  is  ;il-n  in  the  issue  for  M.ircli  31  a  letter  from  Charles 
F.  Harfuril,  which  says: 

Last  Xovemlier  a  conference  was  hclil  under  the  presidency  of  the 
Archbisho]-  oi  C.iiiterbury  to  consider  tins  subject,  which  consisted  of  people 
interested  generally  in  the  welfare  of  the  nation,  but  who  were  not  neces- 
sarily associated  with  the  temperance  societies.  This  conference  recognized 
the  great  national  peril  which  arose  from  the  drink  habits  of  the  nation, 
but  suggested  as  a  first  effort  that  an  attempt  should  be  made  to  deal  with 
the  admitted  danger  by  means  of  a  patriotic  pledge  of  voluntary  abstinence 
for  the  period  of  the  war  and  by  provision  of  suitable  means  for  refresh- 
ment and  recreation  apart  from  the  sale  of  drink,  in  addition  to  the  opera- 
tions of  the  Temperance  Restrictions  .Xct.  I  was  appointed  the  honorary 
secretary  of  the  committee  formed  to  carry  out  the  resolutions  of  that  con- 
ference and  it  was  iny  duty  to  communicate  them  to  all  the  mayors  and 
chairmen  of  district  councils  throughout  England,  the  other  parts  of  the 
I'nited  Kingdom  being  otherwise  dealt  with.  [  have  also  had  the  opportunity 
of  reading  all  the  press  comments  (,n  this  subject  from  that  time  onward  and 
I  have  no  hesitation  in  saying  that  any  voluntary  efforts  >vhich  could  be  put 
forth  are  utterly  unable  to  cope  witli  the  existing  difficulty,  and  I  am  con- 
vinced that,  if  the  government  will  take  the  drastic  action  proposed  by  the 
representatives  of  the  shipbuilding  firms,  public  opinion  will  be  on  their 
side.    I  would  venture,  however,  to  m.-ike  the  following  suggestions: 


r.KF.AT    niUTAlN 


49 


1.  Anything  which  may  be  done  must  be  clearly  understood  to  be 
emergency  legislation  solely  on  accifuni  uf  the  necessity  caused  by  the  war. 

2.  There  must  be  no  singling  out  of  si)ec4al  classes  for  unusual  treatment. 

3.  Full  justice  must  be  done  to  "the  trade"  and  the  nation  must  be  pre- 
pared to  bear  any  extra  financial  burden,  though  1  belie,  e  that  the  gain,  even 
from  the  economic  point  of  view,  will  be  infinitely  greater  than  the  loss. 

4.  The  licensed  victualers  should  be  invited  to  cater  for  the  provisioning, 
particularly,  of  the  industrial  community,  whose  nutrition  is  a  matter  of  tlie 
first  importance  and  which  has  been  seriously  interfered  with  by  money 
spent  in  drink  instead  of  food. 

On  April  1,  1915,  the  Times  said  of  the  attitude  in  Sheffield: 

The  total  prohibition  during  the  period  of  the  war  of  the  sale  of  excis- 
able liquors  is  not  supported  by  the  men  who  direct  the  great  armament  works 
of  Sheffield.  There  is  general  agreement  that  no  case  has  been  made  out  for 
so  drastic  a  step,  and  that  as  a  means  of  increasing  the  output  of  munitions 
of  war,  it  would  be  of  very  doubtful  value.  Complaints  that  work  is  neg- 
lected because  of  drink  are  very  few,  and  the  number  of  hours  worked  by 
the  men  in  the  shops  where  the  pressure  is  high  are  remarkable. 


In  the  issue  of  April  7  it  said  that  the  licensed  trade  in  Scot- 
land w:ls  to  receive  a  deputation  representative  of  the  Scottish 
licensed  trade  on  the  drink  question ;  that  the  views  of  the  trade 
in  Scotland  were  that  total  prohibition  or  even  prohibition  of  the 
sale  of  whiskey  was  impracticable;  and  that  the  alternative  which 
they  would  propose  to  the  Chancellor  of  the  Exchequer  was  that 
the  case  would  be  met  by  drastic  local  restriction  in  the  districts 
where  the  manufflctu 'e  of  munitions  of  war  was  being  hampered 
bv  drink.  The  deputation  also  requested  a  meeting  with  the 
Labor  Party,  who,  it  is  authoritatively  stated,  favored  a  restric- 
tion of  hours  rather  than  prohibition. 

On  April  5  a  letter  to  the  Times  demands  that  drink  be  abol- 
ished and  the  "pubs"  converted  into  recreation  centers  for  the 
rest  of  the  war.  A  machinist  protests  against  the  assertions  of 
drunkenness  made  by  the  Employers'  Federation  in  tlieir  inter- 
view with  Llovd  George.  He  claimed  only  a  small  minnrity  of 
munition  workers  drink  to  excess.  A  third  writer  claims  that 
overpressure  and  overfatigue  were  responsible  for  much  that 
li(|Uor  is  charged  with.  He  does  not  want  prohibition,  since  the 
British  people  "have  neither  the  discipline  of  the  Germans  nor  the 


50 


(inVF.ltNMKNT    CONTUOI.    Of    Till:    MyiOK    ni'SlNKSS 


docility  of  tlic  Russiarr^."  He  Wdtilil  like  to  have  li(|uor  at  the 
iiiiliistrial  l)lalU^  ^'radually  supplanted  liy  iH'iialcnhiilic  heverafjes. 
Conimentinj,'  iipoii  the  Kinj^V  decisinn  to  abstain  from  the  use 
of  alcohol  for  tiie  iluratinii  of  the  war,  a  letter  in  the  issue  of 
April  7  from  Mr.  k.  lUirhidge  said: 

As  illiistratiiiR  the  great  iiiflueiice  of  the  King's  example  in  deciding  to 
forego  alcohol  during  the  war,  I  am  sure  it  will  he  of  puhlic  interest  to  know 
that  today  all  our  employes  who  have  meals  on  the  premises  have  unani- 
mously ofTcred  to  give  tip  alcoholic  drinks  f.ir  the  future.  I  have  no  doulit 
that  large  masses  of  workers  all  through  the  country  will  act  similarly,  and 
also  that  employers  will  encourage  this  national  movement  toward  temper- 
ance wherever  the  desire  for  abstinence  is  manifested. 

In  the  same  issue  are  short  paraj;;raphs  from  Glasgow,  Shef- 
field. Liverpool,  Manchester,  Helfa^t,  Windsor,  O.xford  and 
Edinburgh,  praising  the  e.xamjile  of  the  King  and  saying  that  his 
example  had  been  followed  by  m.iiiy  le.iding  luen  in  these  towns. 

In  the  issue  of  April  15  the  Times  says  of  the  licensed  trade: 

Many  hrewers  and  licenst'd  \  ictualers.  while  admitteilly  uneasy  with 
regard  to  the  possihility  of  government  action,  decline  to  regard  seriously 
the  idea  of  the  nationalization  of  the  liquor  trade.  .  .  .  There  is  a  general 
feeling  in  the  licensed  trade  that  all  sense  of  propori!^  i  is  being  lost,  and 
that  for  the  remedies  which  are  being  suggested  there  is  not  tlie  slightest 
justification. 

The  people  interested  in  tlie  licensed  trade  are  inclined  to  resent 
"the  manner  in  which  temperance  advocates  are  exploiting  the 
necessity  of  the  motnent  in  the  interests  of  the  cause  they  have 
at  heart."  They  declare  tliat  it  is  a  breach  of  the  political  truce  at 
a  time  when  the  friends  of  tlie  trade  are  fighting  the  countrv's 
battles  abroad  and  can  not  therefore  defend  them  at  home. 

An  editorial  in  the  issue  of  May  1,  1913,  says: 

The  government's  licjuor  ^ilume  has.  of  course,  raised  a  great  hubbub, 
which  can  hardly  be  a  surprise  to  tliem.  .  ,  .  Drastic  interference  touches  too 
many  people  in  the  Briton's  tenderest  point — his  personal  liberty — not  to 
arouse  strong  feeling.  But  it  behooves  us  all  to  remember  the  circumstances 
and  not  to  confuse  these  special  war  measures  with  ordinary  liquor  legisla- 
tion. For  our  own  part,  after  reconsidering  the  scheme  .  .  .  we  remain  of 
the  opinion  that,  as  a  whole,  it  is  framed  on  reasonable  lines;  but  we  think 
that  it  needs  a  good  deal  of  modification  in  detail.  ...  It  is  already  abun- 
dantly clear  that  changes  will  be  demanded. 


GKF.AT    1!  KIT  A  IN 


51 


It  is  arRiicd  by  some  ulijcctors  that  the  taxatinii  [impusals  are  really 
beside  tlie  mark,  and  will  materially  interfere  with  large  sections  of  the 
piipulati<in  who  have  noihinR  to  do  with  the  evil  which  is  the  sole  reason 
for  doniK'  anythin({  at  all.  Kesarded  in  this  li^;ht.  these  proposals  appear 
as  an  attempt  to  force  "temperance"  on  the  Reneral  pulilic  imder  cover  of  the 
war  eniernency.  and  as  such  they  are  sure  to  arouse  widespread  rcscMtinent. 

In  n  hiter  issue  of  the  Tiiihs,  fnr  December  2,  1916,  a  corre- 
spondent writes  as  follows: 

In  the  district  where  1  live  each  villager  keeps  a  iiig  or  two.  .  .  .  Large 
inimtiers,  too,  are  reared  liy  rarmers.  Imt  since,  owing  to  the  demand  for 
harley  for  brewing,  etc.,  the  price  has  risen  to  7()s.  per  (juarter,  these  pis;s 
are  being  thrown  on  the  market,  immature  and  unfit  for  food,  owing  to  t!ie 
impossible   price  of   feeding  stutTs. 

Why  prate  of  "economy  in  food"  or  shortage  m  this  appalling  waste 
is  allowed  to  continue? 

In  the  issue  of  Deceinljer  22.  W.  Brannveli  Booth  writes: 
"W'iiy  slmuld  three-fdurths  of  the  populatii^n  of  this  country 
suffer  from  an  insufticiency  of  the  necessities  of  life  in  order  to 
provide  the  other  fourtli  witli  wliat  is  unnecessary?"  Wliat  folly 
it  is  to  "use  the  enormous  ipi.tntity  of  ^^rain  and  sujjar  per 
annum — of  the  former  about  6.^.000.000  busiiels.  and  tlie  lat- 
ter 360.000.000  pounds — in  proihicin^^  drink  for  the  u.-e  of 
one-fourlii  of  our  people,  and  tliat  when  they  do  not  really 
need  it." 

In  all  these  discussions  there  is  a  noticeable  tendency  to  dis- 
claim anv  temperance  or  proliibition  proclivities.  Such  support 
as  is  given  to  the  restriction  of  the  sale  or  consumption  of  drink 
is  based  solelv  upon  tlie  necessities  of  war.  I'rom  the  very  first 
tliere  was  a  delilierate  tendency  to  take  the  wliole  (|uestion  out 
of  tlie  hands  of  prohiliitionists  and  temperance  a(hocates.  Some 
of  the  most  important  official  reports  and  documents  make  no 
mention  of  temperance  societies  or  publications.  One  might 
read  alni'  ist  every  official  statement  regarding  drink  control,  and 
all  that  the  leading  newspapers  published  regarding  it,  and  never 
suspoct  that  there  was  or  ever  had  been  a  distinct  temperance 
movement  in  Great  Britain. 

There  was.  however,  a  great  deal  of  active  propaganda  going 


5' 


(i(i\  ii^NMKN  r  I  ii:\  I  i;()i,  OK    iiii;   i.inroK   iusim:ss 


I'll  liy  v.triius  tiiiijK.r;mce  <ir>,',iiii/;'tii'iis.  Tlu'  '1Viiiiht;uu-i'  I.cj;- 
i>liilinii  Li-.-iKiu-,  riprcM'titinjj;  ;i  ^rv.a  many  M>cial  wdrkcrs,  had 
I)cfn  nitiiiiiif,'  t.  T  ^ivtral  yiars.  Its  jnihlislu'd  object  was  to  jiro- 
iiioti'  ttinpirance  reform  hy  li>,'islati<in  and  to  effect  tlie  di^trilni- 
tion  of  tlie  licen-in^;  laws.  In  it>  Monthly  Xoti-s  it  l)ef,'an  larly 
in  the  war  aKitatin^,'  for  more  strict  control  of  tlie  licnior  trade. 
Tlie  aciiiin  taken  hy  Russia  to  [)roliihit  the  sale  of  vodka  was 
widely  published  and  commented  njjon.  In  the  issue  for  Janu- 
ary-February, I'M 5,  the  Leaj,'ue  published  an  article  entitled  "The 
Present  Opp'>rtunity,"  in  which  it  was  urj,'ed  that  there  never  was 
a  time  wlien  the  temperance  fpiestion  had  been  so  definitely  forced 
upon  public  attention  by  events,  and  that  teni])erance  reformers 
should  take  advantage  of  that  situation  to  brinj;  the  matter  before 
the  public  in  every  possitile way.  Subse(|uent  numbers  show  that, 
while  the  men  in  control  of  public  atTairs  seemed  to  ij,Miore  the 
active  temperance  reformers,  nevertheless  the  active  tem[)erance 
reformers  were  iii't  disposed  to  be  i^mored  and  were  usinj;  every 
op]iortunit>-  to  m.ike  tlieir  influence  felt. 

The  Aiihiucc  Xc'cs,  wliich  is  tlie  official  publication  of  the 
United  Kinj^d'nn  Alliance,  tlie  larj,ast  temperance  bodv  in  l-'nj,'- 
land,  was  likewise  active  in  temperance  pr<ipaj,'anda  and  made 
lar.!,'e  use  of  the  necessities  of  war  as  an  arfjunient.  Lord  Kitche- 
ner's persfiiial  advocacy  of  abstinence  and  the  Kinj^'s  voluntary 
ado]ition  of  total  abstinence  were  kept  before  the  people  as  e.\- 
aiiiples  to  be  copied. 

Sncli  captions  ,is  "beer  or  bread"  were  kept  before  the  eyes  of 
the  pul)lic.  The  issue  of  January,  1917,  contains  an  arj,'ument 
entitled  "Haiij,'  on  to  Your  Pi},'s."  The  Parliamentary  Secretary 
to  the  Board  of  .\),'riculturc  had  apparently  advised  cottaj,'ers  to 
keep  their  pij,'s  and  not  sell  them  or  slauKhter  them.  The  Ncii'S, 
however,  raised  the  (|uestion,  how  can  the  cottaj^'er  hanj;  on  to  his 
pij,'s  and  fatten  them  if  the  fjrain  is  to  be  used  in  the  making  of 
beer  rather  tlian  meal?  The  point  was  that  all  over  the  country 
it  had  been  impos-ible  to  fjet  sufficient  quantities  of  barlev  meal 
because  the  maltsters  and  brewers  had  bought  up  all  that  had 
come   V>   the   market.     The  argument   ends   with   the  question. 


(.I(l..\r    IIKIIAIN 


3.? 


W  liiiii  >li:ill  lie  s;icrifi(.i(l,  Ijcit  (/r  Imcch?     W'l.-  can  iiDt  liavc 


iK.tll 


In  the  i-^uc  for  May,  1917,  it  stati's  tliat 


A  plcliiscile  lias  hecii  taken  aniniiK  eiiiplciycs  nf  sliili>arcls  in  llie  Clyde 
rcxion  on  a  rcsDUilKm  |iriitcstiiig  aganist  statimenfs  reriectinn  <in  tlieir 
S'lliricty  and  industry  in  the  fiirnisliinn  (jf  munitions  and  >lnp-..  repudiating 
the  aoiiisation  that  they  would  resent  liy  a  pidiiy  of  "down  tools"  or  otlier- 
wiT-e  further  drastic  restrictions  on  the  sale  of  intoxicating  liquor,  and 
declarini;  that  they  voiild  welcome  prohiliitiun  if.  in  the  opini'in  of  the 
Koiemnient,  it  would  shorten  the  war  by  a  sinyle  day.  and  were  made 
applicahle  to  all  classes. 

Early  in  I'MT)  tlii'  Spectator  anntmncetl  its  defi^inn  not  to 
aiitiiit  any  a(lM.rtisiincnts  of  intnxicants  in  it.>  Cdininns  during 
tlu'  [RTitnl  (if  tlii;  war.     In  tlio  issiic  nf  (k'tcher  13,  I'M",  it  >aid: 

They  urge  ...  us  to  e.xercise  economy,  and  to  save  e\ery  ounce  <if  food 
we  can  do  without,  if  we  want  to  make  sure  of  heatiiii;  the  (jernians,  hut 
the  word  "lieer"  or  "alcohol"  is  never  mentioned.  We  are  told  to  economize 
in  meat,  in  milk,  in  cheese,  in  butter,  in  bacon,  in  sausais'es.  in  dog  biscuit,  in 
petrol,  and  in  luindrtils  of  other  things,  but  one  wurd  is  always  missing. 
About  beer  or  alcohol  there  is  a  complete  and  most  successful  conspiracy 
of  silence. 

One  of  the  most  sijjnificant  movements,  however,  came  rela- 
tively late.  It  was  known  ;is  the  Strenj,'tli  of  Hrit.ii.i  Movement. 
It  "was  formed  at  a  nieetini;  of  l)iisiness  men  and  oilars  at  the 
Hotel  Cecil  in  June.  1916,  when  a  resolution  to  proceed  with  the 
campaign  for  [)rohil)ition  dnring  the  war  was  proposed  bv  Sir 
Alfred  Booth.  Bart.,  Chairman  of  the  Cunard  Line,  secmnled  hy 
Mr.  Angus  Watson,  supported  hy  Mr.  Thomas  Burberry,  and 
carried. 

The  executive  committee  appointed  at  that  meeting  resolved 
upon  two  courses  of  action: 

1.  The  prfimotion  of  the  Strength  of  Britain  Memorial  among  men  and 
women  of  distinction  and  of  representative  positions  in  all  departments 
of  life. 

2.  The  promotion  of  a  newsiiaper  campaign  to  enlighten  public  opinion 
as  to  facts. 

The  Memorial  has  behind  it  an  array  of  the  brain  power  of  the  nation 
that  no  government  can  lightly  set  aside,  but  behind  this  demonstration  of 
the  intellectual  opinion  of  the  country  an  effort  is  lieing  made  to  organize 
a  national  volume  of  popular  opinion  through  newspaper  appeals  which 
reach  millions  of  people;  through  the  issue  of  a  handbook  of  facts  available 


54 


(;(n  iKN.Mi.N  r  iontudi,  of  tiik   i  kji  dk    iu  sin  ess 


at  tlip  .■ttKcs  fur  5s.  per  lU),  or   XJ  per  l.iXKl;  ami  lliruugli  the  piiLluatn.ii 

of      tlli>      l„M,k,' 

( )tK'  d  tiK-  llr>t  acts  of  this  orpanizatinn  was  tin-  ptililication  of 
what  was  known  a>  ilic  Slrcn^,'tli  of  Hritaiii  Memorial,  a  pitition 
si^MU'd  hy  inon-  than  J.OOO.OOO  a(hilt  ptT^.n^  in  ljit;lanil  anil 
Wales,  nmre  than  400. (XX)  wnintii  in  Scutland,  .ukI  more  than 
150,000  adult  [)ersons  in  the  single  i)ro\ince  of  Ulster  in  Ireland. 

AN  APF^FAI.    vn  THI-:  COVKFv'NMKNT  ni-"  r.RHAT   URITAIX   TO 
PROHIBIT   Till-:   l.IQl-()K  TKAMIC    l)LRI.\<;  THE   WAR 


Slrciii/'h  (if  lUitai'n  Mciiioriiil 

We.  (ITI7F.SS  (IK  rilE  I'nITKH  KiNc.IXIM.  APrEAU  T"  THE  (.(IVER.V.MENT  TO 
riT    THE    NATIU.N    (IN    II-    Kl'l.L    STHEN(iTH. 

Two  grave  dangers  stand  before  us,  holding  IlkIc  tlie  pmver  >.f  early 
victory  and  thro.wiiin  a  sliadow  over  the  vision  of  peace.  One  is  the  wasting 
power  of  alcohol:  the  other  is  the  imperiling  of  infant  life,  .^mony  all  the 
factors  of  weaknc'-s.  these  confront  us  with  terrilile  vividness,  and  tliey  lie 
within  our  contr.il.  Willi  the  weakening  power  of  alcohol  removed,  our 
national  effort  against  the  enemy  would  have  gathered  increased  strength; 
with  iiicrea-,ed  strength  and  more  rapid  supplies  our  losses  in  «ix  cam|iaigns 
would   have   heeii   sulistantially   reduced. 

Xow  that  the  nation  has  followed  the  example  of  our  allies  in  enrolling 
its  full  manhood,  we  appeal  that  we  may  range  ourselves  with  our  greatest 
allies  and  put  on  the  whole  armor  of  Britain.  The  power  exerted  hy  alcohol 
cuts  throunh  the  efficiency  of  the  nation;  it  weakens  our  fighting  forces  and 
must  lengthen  the  war.  .  hese  facts  stand  out  concerning  this  powerful 
trade : 

It  iii.NiiERS  THE  AKMv:  it  is  the  cause  of  grave  delay  with  munitions; 
it  keeps  thousands  of  men  from  war  work  every  day,  and  makes  good,  sober 
workmen   second   rate. 

It  hami'EHS  the  navy;  it  delays  transports,  places  them  at  the  mercy 
of  submarines,  slows  down  repairs,  and  congests  the  docks. 

It  threatens  ofR  mercanth.e  marine:  it  has  absorbed  iliiring  the  war 
over  2(H),IX)l>.()f)0  cubic  feet  of  space,  and  it  retards  the  building  of  ships  to 
replace  our  losses 

It  riESTROvs   oir   food   si-itlie.s:   since   the   war  began   it   lias   consuined 

'  From  page  4  of  Defeat  or  Viclorw  the  Strength  of  Britain  Book  by 
.Arthur  Mee  and  J.  Stuart  Holden,  published  for  the  Strength  of  Britain 
Movement.  London,  and  reprinted  in  the  I'nited  States  bv  the  .\merican  Issue 
Pulilishiiig  Company.  Westerville,  Ohio.     First  edition,  January,  \'>\7 ;  second 

edition.  I'elruarv.  1917. 


(.m.Ai    111(11  \i\ 


55 


MiK.ir  cnouwli   !■>  I.i«t   Ml'' 


I(ki 


'lave 


,MK).(KK)  wcirkcrs.  |.(KKI,(»K) 
anil  (liiriiiK  tlic  war  it  h.K 
r.iil    (if    a   wi-inlit    i-ijual   to 


over  ,l,5(Kl.(«io  i,,iis  of   f I.  «iih 

It  uses  ii|i  nijirr  siiKar  tliaii  the  ar-m 

Ir  WA^TKs  (II  R  uNASd.M.  sr«i,\(,rii  ;  viiui-  tin-  war  l.c^tan  cur  ik-.,|,I 
spi-iit   (III   ale. ill. .1   over    Jt-KKI.OOd.OtK)    |stfrliii«), 

Ir  Kiums  IKK  v\rio,s'-  sTR(\(,tii-  it  uses 
acres  of  land,  and  l.SdO.IHXI  tons  of  coal  a  \ear: 
iiuoUeil  the  lifting'  and  handling'  ..ii  road  an. I 
5(MKH1.(KX)  t(.ns. 

It  smattkks  oik  mokai.  strkm.tii  :  its  tcmptatidns  to  w.iiiieii  involve 
^;rri\e  .lanuer  l.i  duldreii  and  anxiety  tci  llidusands  of  s(ddiers. 

The  serious  facts  cdncerninK  the  elTects  .if  drink  mi  our  forces  liave 
t.een  known  since  the  early  da>s  of  the  war,  and  military  and  -laval  iifTicials 
appointed  to  invesliKate  them  pressed  strongly  for  instant  decision.  I  hiring 
the  eixhteen  months  .since  then  the  government  ap|ioiiited  the  li.jrd  of 
C.>ntr(d.  hilt  its  work,  successfully  socially,  has  had  little  effect  in  the  >'reat 
industrie.s  on  which  our  armies  rely.  Here  the  terril.lc  truth  of  eighteen 
iii'iiiths  aj;o  is  still  terriMy  true:  the  men  in  the  trenches  are  hetra-.cd  by 
an  enemy  at  home,  .\fter  all  that  has  heeii  done,  the  loss  of  time  on  the 
Clvde  is  rtiliiced  from  JO  t..  10  per  cent:  men  earning  a  k'>o<1  week's  wajje 
in  half  a  week  ahandon  work  for  drinkin>r.  and  those  men  who  jjive  thtir 
hest  to  the  nation,  striving  nolily  t.i  iin.!..  the  injury  of  their  weaker  com- 
rades, are  powerless  in  this  criid  ^;rip.  It  is  not  drunkenness  alone,  how- 
ever, hnt  the  constant  sapiiini;  of  one's  cnersies  hy  alcohol,  that  endangers 
our  supplies  of  nninitions. 

Xearly  two  years  have  passed  since  flic  Kin^;  hanished  this  source  of 
national  weakness  from  his  household:  since  ennineers,  manufacturers  of 
explosives,  admirals,  directors  of  naval  e(]uipment,  ur^;ed  the  ^;.lvernInent  to 
hanish  it  from  the  nation;  since  the  Director  (.f  Transports  appealed  for 
the  withdrawal  of  all  drink  licenses  for  the  sake  .f  the  army  and  navy;  and 
since  the  Shiphuilders'  l-'ederation  declared  that  with  the  total  abolition  of 
drink  the  work  would  no  with  a  swing,  and  y..u  would  get  as  fine  work 
in  our  yards  and  shops  as  in  the  trenches 

Vet  the  alcohid  brake  is  still  on  our  wurkshops. 

.\s  it  is  impossible  to  estimate  the  disastrous  naval,  military,  social  and 
economic  conse<|uences  of  alcohol  in  this  crisis,  so  it  '  impossible  to  exag- 
gerate the  good  results  of  its  removal.  In  towns  under  the  Control  Hoard, 
chiefs  of  p  'ice  are  glowing  in  their  praise  of  peaceful  towns  and  <|uiet 
streets  at  night;  the  London  Sessions  following  the  adoption  of  the  order 
were  the  shortest  ever  known,  and  several  prisons  have  been  closed  since 
the  Hoard  began  its  work.  Yet.  though  the  general  drinking  hours  have 
bee;  -uddcnly  cut  down  to  two  short  periods  a  day.  there  has  been  no  serious 
complaint,  and  we  commend  this  as  proof  of  the  readiness  of  the  people 
to  accept  war  restricti.  ns  and  to  share  in  a  common   sacrifice. 

We  are  cnvinced  that  t!ie  dangers  confronting  us  arise  from  the  sudden 
p, issession  of  abundant  wages  rather  than  from  a  lack  of  patriotic  feeling; 
untrained  in  spending  or  in  thrift,  large  numbers  of  our  workers  waste 
t/icir  reserves   in  drink.     The  greatest  good  a  government  can   render  to  its 


(.n\  I'.l; 


.Ml.Nl     idNlUnl.    (i|      IIIL    l.ltjl  Ilk     111   -.1M;>S 


,,c..li>  i>  !■■  >Ir>i.^tlHM  thfir  rinhl  i,,,!,"—  ..n.l  u.Ai-n  ll,,-  i-«.t  .H  t.inr 
tempta-  .1,,.  and  there  lies  np.,,,  us  ....a  .1..-  .l-nM.-  .lut^  .!  prolect.nv:  .air 
people  (r..m  ihc  temptation  to  ,|r.ul.  ..«  iv  thnr  .-.,>, uhk,.  :>i..1  of  prote.t,ii< 
the  state  from  the  int-.k-raMe  folly  ot  Ihkii  «.>r  vk.iwo  mr.M.l  lo  the  a.h..M- 
tane  of  our  enemies. 

With  the  rcMiurces  of  the  u.uion  taxcl  to  'lu-.r  utmo-t.  the  «..M>'  ■.! 
fsiHMltK)  (-i.ThiiK)  a  &.xy  on  alo.hol  i^  ,i  I...  t  of  p.tifnl  MKniluaiic.-  W  nh 
thcr  h,«h  «ai:es  onr  people  ,hK'  p.i^  ■'  -""^^  m^tea.!  of  hu.hhnK'  "1> 
reserves  uf  power  and  in.lepen.lrna- ;  .hihlreii  <1h-  faster  of  neKlecl.  .m..I  a 
city  mi^ionarv  has  forty  ai.pcals  from  the  trenches  to  look  alter  wiven 
"guinK  wrnnK"  throtmh   ilrink.  ,,11 

!f  it  is  said  V.C  need  the  re^enne  ihe  >t,.ie  dtrr-c.  trom  ale. .1,0],  ih'- 
answer  lies  m  these  things.  No  nation  can  make  a  pr^.l.t  ir.  m  s„ch  a  tra.le 
as  this  r.iit  the  fear  of  revenue  is  shattered  hy  the  nohlo  action  ..t  ..iir 
allies  and  domin,..ns ;  of  Kussia,  which  has  pr-  Inh.ted  vodka;  of  hrance.  which 
has  prohihited  ahsinthe  and  the  sale  of  spirits  to  women,  sohliers  and  you.m 
reople;  and  of  parts  of  our  dominions,  especially  in  Canada,  where  the  sale 
of  alcohol  is  rapidly  disappearing,  followed  hy  the  closing  of  prison,  and 
the  quickeninR-up  of  hfe.  .,     ,    .  ,,. 

Russia    wanting  strength  aii.l   mon.v   too.  has   found  hoth   ,n   prohihitn.n 
The   'axini;   poucr  of   her   people   has   ri^en    from   sh.lhiiKS   to   pounds.     The 
banks  that  received   £lHi).lKK)  1  sterling;!   in  .I..iu,..ry  hefore  '^'f/"'  ;';;"^;;;' 
in    Tanuary.    I'n5.    £.\(.<KI.IK)()    (sterlim;!.   and    in   .lanuars.    l^lfj,    £l..()IXI.lloo 
(sterling »''  The  industrial  efficiency  of   Russia  has  increased  hy  M)  per  cent, 
and  an  increase  of   10  per  cent  in  our  efficiency  would   replace  our  revenue 

from  drink.  ,  .     .1 

P,ut  aKiinst  all  considerations  of  financial  sacrifice  must  l.t  set  the 
threatened  loss  of  our  mercantile  supremacy  at  sea.  Unless  we  can  replace 
our  In.st  ships,  our  supremacy  is  doomed,  and  victory  in  the  field  must  Imd 
us  hereft  of  the  chief  factor  of  our  national  prosperity.  The  car^'oes  car- 
ried for  the  drink  trade  hy  our  v^•ar  time  shijis  have  heen  ahout  2,0<K).I>IH) 
tons  and  the  same  cause  that  reduces  our  shipping  red.-ees  our  capacity 
for  repairing  and  replacing  our  lost  carrying  power  at  sea.  The  contemplation 
of  these  things  while  neutral  nations  are  huilding  fleets  must  give  rise  V, 
the  gravest  appreheiisitin. 

More  serious  still  i^  the  peril  of  the  chihl-hfe  of  the  state.  It  is  perishing 
faster  than  in  times  of  peace.  Our  hrave  ally,  France,  with  the  enemy  almost 
■Kt  the  gates  of  Paris,  won  for  itself  the  enduring  distinction  of  the  lowesf 
infant  death  rate  ever  recorde.l  in  its  capital.  What  ?aris  can  do  can  he 
done  in  our  towns  if  the  same  patriotic  ("cvotinn  he  shown  hy  our  own 
people,  and  if  all  removahle  dangers  be  removed.    Chief  among  these  dangers 

No  source  of  weakness  under  our  control  is  so  widespread;  n.ine  is 
tnoi^e  vital  to  the  safetv  of  the  state  in  war  and  its  welfare  in  peace.  Rut 
the  dangers  of  alcohol  are  tenfold  now.  The  prevalence  of  venereal  disease 
among  one-tenth  of  our  urban  population,  it*  special  danger  to  child-life,  and 
the  anxietv   with   which   wc  must  contemplate   its   wide   extension   as  one  of 


(.KI-.M     IIKllMN  .••/ 

tlic   UTnlilc  t.lt*  of   pc.ii-p.  iiii|)cisc  iiiHiM   lis  an   i;u  rciMiiK   ri'-|iciii>ilpilit\       In 
]'l\-  (ncr  _'7".(<K*  wiirkiiiK  ila>s   were  Inst   in   the   M.i\ y    fnini   thii  i.him'.  aii'l 
Jl(i.(XK)  ilav-  111  tlif  army,  and   the   Knval   (nimtiisvioii   liis  nrunl   tli.il   ;i  <l<- 
crease   of   dnnkiiiK    woulil   lie   a'    importaiil    faitor   in    tlu'    ilci  rr.iM-    •  f    tins 
f.irreacliiiin  ian>c  of  natii...  .'.  deray. 

It  is  not  to  lie  (|iievtioiicd  that  in  all  these  causes  fiir  aiiprchcnsioii.  alco- 
hol is  the  (jrcalest  siiiKlo  factor  that  can  he  conlrolled.  It  is  not  to  he 
(jnestinned  that  the  nation  has  readily  apjiroved  the  halfway  step  to  prohihi- 
lion  that  has  alreaiK  heen  taken.  It  is  our  profound  conviction  that  the 
lext  step  must  he  taken  heforc  the  slrer^th  of  Britain  can  he  thrown  etTect- 
ivfly  into  the  arena  on  whii  h  our  'iherties  depend.  No  ration  can  hi  at 
full  streiiKtIi  with   such  a   factor  in  its   miiKt. 

We  are  no  temperance  reformers  as  such.  \\  c  stand  for  the  ^rcat  desire 
of  all  Rood  people  to  strike  the  mightiest  hlow  for  freeilom  of  which  llritain 
is  capable.  We  support  the  demand  for  prohihiii  )n  made  to  the  govern- 
ineiit  hy  its  owr  investinalors.  and  hy  the  shiphuilders'  depiilation.  with  not 
a  tei'  'aler  among  them,  in  March,  1915.  IVIievint;  in  the  Prime  Minister's 
word' .  that  "no  sacrifice  is  too  ^reat  when  freedom  and  honor  are  at  stake." 
and  that  rich  and  poor  alike  should  hear  it.  we  ask  the  Kovernment  to  with- 
ilraw  all  drink  licenses  thrnnvhout  the   KiiiKdom   for  the  period  of  the  war. 

We  believe  a  golden  mome;it  has  arrive<l  for  our  country;  that,  prepared 
for  sacrifice  hy  the  example  of  the  King  and  Lord  Kilchnier,  the  nation  is 
ready  for  the  -latural  step  that  I'rance  and  Kussia  have  already  taken;  the 
suspension  of  I'le  liijuor  trallic  during  the  war,  the  conversion  of  the  public 
houses  into  h  "  es  of  refreshment,  will  ipiicken  up  our  civil  and  fightinu 
populations,  will  raise  a  new  fire  of  resolution  in  our  people,  and  will  give 
to  millions  the  first  opportunity  they  have  ever  had  of  breaking  old  habits 
of  weakness  .mil  forming  new  habits  of  strength 

We  believe  that  in  this,  as  in  al!  other  vital  issues,  there  must  be  sym- 
pathy of  purpose  and  unity  of  action  between  the  .Mlitd  n  ns;  and  we 
appeal  to  the  government  to  be  hold  and  trust  our  people,  to  be  strong  and 
follow  our  allies,  to  be  worthy  of  the  mighty  destinies  they  hold  in  solemn 
trust. 


This  appeal  was  signed  by  vast  mimbcrs  of  influential  pir- 
sfins  represcntinj;^  the  British  army  and  navy,  the  controllers  and 
directors  of  the  munitions  of  war,  the  Privv  Council,  both  houses 
of  Parliament,  representatives  of  the  public  services,  trade,  com- 
merce and  industry,  artists,  educators,  jiliysicians,  scientists,  mu- 
sicians and  dramatists,  as  well  as  the  representatives  of  all  ])hascs 
of  social  service 

One  of  the  most  significant  publications  which  the  liquor  aj,'ita- 
lion  i)roduced  was  first  issued  under  the  title  [)cfcal  by  Mr 
Arthur  Mee  and  J.  Stuart  Holden.     The  first  edition  of  100.000 


;•( 


5X 


covr.kNMr.NT  roNTKoi.  or  thk  i.iyruK  ucmness 


ciipics  was  x.ld  ill  iweiity  <l,iys.  It  was  a  very  scvitc  and  iincfim- 
pri'iiiisini,'  altai'k  upon  ilu-  l;' >\  iTiinu-iit  tnr  its  iicf,dij,'ftn:u  in  tlie 
matter  ni  liijiior  contr-il.  A  sturm  df  jirdtcst  arose,  Iiowcmt, 
a,i^ain-t  tlio  title  of  the  ]iaiii[)iilet,  namely.  Pcfi-at.  It  was 
feared  that  it  [)reseiited  tnn  dark  a  jiicture  and  that  it  iiiii,'lit 
weaken  tlie  tnorale  <>i  tlie  nation.  Accordinjjiy,  a  second  edition 
w;i>  i)nidiiced  calknl  lh-tt\it  or  I'iitory,  in  wliich  tlie  altern.i- 
tive  was  at  least  jiresented,  tlion,i,'h  the  ar<,'ninent  still  went  to 
sIkpw  lli;it  the  continued  destruction  of  in;m  power  tliriiu,<,'h 
drunkenness,  and  of  foul  tliriiui,'h  manufacture  of  the  material 
thai  ni.ikes  men  drunk,  weri.  .nrh  workins;  toward  defeat.  As  a 
hit  of  elYectiNC  p.imphleteerinj^,  it  has  li.id  few,  if  anv.  ecjuals 
(hirini,^  the  [iresenl  w.ar.  A  list  of  the  chapter  headiiij,'s  will  j^'ive 
some  indication  as  to  its  scnpe.  The  methotl,  however,  is  that 
of  an  emotional  appeal  r.ather  th.an  of  strictly  scientific  arj^unicnt. 
After  m.ikint,''  due  allowance  for  e.\a.i,'j,Hration  and  etYecti\e 
plir.i>e  iiK'kinj,',  there  is  little  in  the  arj^iimeiit  that  is  contrarv  to 
the  fiiidin.!,'s  of  scientific  students.  One  of  the  joint  authors  <>f 
this  hook.  Mr.  .Arthur  Mee.  is  sa  '\v  the  .Xew  York  Times  to 
he  the  most  energetic  and  inHueiU-.i.  prc.liihitionist  in  EnjLjI;  nd. 
In  anntlier  wi  irk  entitled  Tlir  fidillcrs.  he  st  s  that  duriiis,' 
the  week  ending  May  19,  l')17: 

1.  Submarines  liestrdyod  27  I'.rilish  carRocs.  mnstly  i.vcr  1.600  tons. 
Brewers  destroyed  27  Hritish  f'od  cargoes,  totaling  9.(KX)  tons. 

2.  The  granaries  of  Canacia  were  crammed  with  wlieat  waiting  f.ir 
British  sliips.  The  mm  iiuay  at  London  docks  were  crammed  with  casks 
of  rum.  but  a  ship  arrived  witli  I.INKI  casks  more. 

.V  .\  w.iman  was  fined  five  pounds  for  destroying  a  quartern  loaf.  Brewers 
were   fined   notliing   for   destroying  millifins   of  loaves. 

4.  Poor  people  waited  in  queues  to  Iiuy  sugar  in  London.  Cartloads  of 
sugar  were  destroyed  in  Lon  !  m  breweries. 

To  keep  up  the  bane,  the  fjovernment  acis  as  follows: 

1.  It  tells  Parliament  that  no  more  rum  is  to  be  imported  and  goes  on 
importing  rum  for  years  ahead. 

2.  It  forbids  the  use  of  spirits  less  than  three  years  old  and  reduces  tlie 
three  vears  tr>  eighteen  months. 

.!  ll  restricts  beer  to  10.0<10.(X)0  barrels  and  tells  us  one  day  that  it  is 
all  inclusive  and  the  next  that  the  .Xrmy  Council  can  order  as  much  e.xtra 
beer  as  it  like^ 


C.RKAT    liiniAIX 


59 


4.  It  says  hops  arc  not  fnod.  and  yivcs  up  luindrcils  nf  thousands  of  feet 
to  shipping'  thorn;  2.),()0U  cubic   feet   tlie  other   week. 

5.  It  lells  us  not  an  inch  t)f  sliippiuR  is  wasted,  and  wastes  shipping  on 
brewers'  vats   from  America  and  ^in  to  Africa. 

Mr.  Mce  denies  the  following  statenu-nts  by  Kennedy  Jones: 

1.  That  only  five  per  cent  of  maU  can  he  mixed  with   flour   for   bread. 

2.  That  barley  destroyed  would  jjive  the  nation  only  ten  days'  bread. 

3.  That  mui;!tions  workers  are  dependent  on  beer. 

These  are  quoted  as  examples  of  the  kind  of  propaganda  which 
was  being  carried  on  in  favor  of  tlie  more  drastic  pcjlicv  of 
liquor  control.  On  the  other  hand,  there  was  consideralile  pro- 
test against  government  interference  with  the  ancient  and  honor- 
able trade  of  manufacturing  and  selling  li(|uor. 

In  the  New  York  Times  for  April  ,50,  1915,  is  an  article  stating 
that  the  clergy  conijirising  the  Lower  Ib.use  of  the  Convocation 
of  Canterbury  were  willing  to  set  an  example  of  abstinence,  but 
were  not  willing  to  abstain  entirely  from  alcihol;  that  the  Lower 
HiHise  pas.sed  a  "resolution  inviting  the  clergy  .and  laity  of  the 
Church  of  England  to  set  an  exami)le  of  .<elf->acrifice"  in  the 
matter  of  alcoholic  Ii(iuors;  and  that  .several  members  voted  onh 
after  being  assured  that  total  abstinence  was  not  expected  of 
them. 

The  New  York  Times  for  ^Lay  1,  l')LS,  says  that  Lloyd 
George's  proposal  to  increase  the  duty  on  alcoholic  drinks  is  pro- 
tested from  all  parts  of  the  country,  and  his  pro])o.sals  "have 
received  little  support  outside  the  immediate  government  circles." 
It  says  that  temperance  advocates  are  dissatisfied  because  total 
prohibition  was  not  proposed,  while  distillers,  brewers,  saloon 
and  hotel  keepers  have  held  meetings  of  protest,  and  in  nianv 
places  have  decided  upon  an  immediate  increase  in  prices.  Ire- 
land is  particularly  disturbed,  since  she  thinks  that  an  adoption 
of  Lloyd  George's  proposals  would  spell  ruin  to  brewers,  licensed 
traders  and  farmers  who  have  sown  barley  in  large  quantities 
this  year. 

On  May  4  the  Times  states  that  the  Allied  Brewery  Trades 
Association,  composed  of  those  trades  which  supply  machinery 


CO 


i.()\  i:i;.\  MKN  1    I  nXTNol.   ni-     llll-'    ilorni,-    in  si  vi-s^ 


and  I'tluT  maliTJals  tn  hrfWiTs.  adDpteil  ri'sclutiuns  at  a  nicetitij; 
in  Ldudnn  cundinmiiii,'  Lloyd  ( icorjicV  plan  for  restricting  the 
li(|ii(ir  trade.  The  resulutidns  say  that  the  plan  is  <lesit,'nal  to 
satisfy  only  the  extreme  nro'.ihition  faction  and  "has  none  but 
[lolitical  objects,  ajjaiiist  which  we  will  protest  with  every  means 
in  niir  power."  It  states  further  that  the  retail  li(iuor  dealers  in 
L()nd()n  have  united  in  a  protest  against  the  proposed  increased 
ta.xation  on  spirits,  wines  and  beers.  They  claim  drunkenness 
has  decreased  in  Lonilon  during  the  war  and  that  "it  would  be 
an  act  of  the  gros-est  injustice  to  penalize  its  millions  (if  inhab- 
itants because  in  some  distant  parts  of  the  country  the  conduct 
of  a  few  workers  is  complained  of." 

In  the  Fortuiijlitly  Rczicic  for  May,  1915,  Mr.  H.  J.  Jennings 
says  that  the  United  Kingdom  spends  £100,000.000  a  year  on 
beer  and  £50.000.000  on  spirits,  while  wine  anil  cider  account 
for  about  £1J.OOO.OOO:  that  the  annua!  revenue  from  alcoholic 
drinks — imp(>rt,  manufacture  anil  sale  —  is  £72.000.000;  that 
Russia  has  lost  over  £70.000,000  a  year  because  of  prohibition, 
'ust  when  her  war  expenditure  was  £2,000.000  daily;  that  Eng- 
iind's  heavy  taxes  on  beer  and  spirits  are  threatening  the  exist- 
ence of  the  li(|uor  industry,  and  th.it  added  taxes  will  destroy  it 
and  remove  a  great  source  of  revenue  to  the  government. 

In  an  article  on  '"  rink  and  tl'.c  War,"  in  the  Xinctccuth  Cen- 
tury magazine  for  May,  1915,  Mr.  Lathbary  .says  that  it  is  not 
proven  that  drinking  has  held  b.ick  the  product  on  of  munitions, 
but  that  this  condition  is  due  rather  to  industrial  causes  and 
shortage  of  labor  resulting  from  enlistments;  that  "the  real  cause 
of  the  scarcity  of  munitions  is  probably  the  unwillingness  or 
inability  of  the  government  to  treat  labor  for  military  purposes 
as  cue  great  idtolc" ;  th.it  a  British  man  had  a  right  to  drink 
when  he  feels  like  it,  and  that  "a  compulsorily  sober  F.ngland 
will  not  be  a  free  England!"  lie  also  states  that  jirohibiting 
wines  woulii  only  injure  the  revenue  of  France  who  is  our  allv. 

The  Alliance  Nnvs  for  December,  1915,  says  that  on  Novem- 
ber 26  a  great  demonstration  of  the  lif|Uor  retailers  was  held  in 
the  London  Pavilion  to  protest  against  the  Control  Board's  new 


GKEAT    BIUTAIX 


61 


order  for  London.  Tlio  chairman  complained  that  any  attempt 
to  alter  the  hours  of  "this  ancient  and  useful  trade"  should  i)e 
fought  out  on  the  floor  of  the  House  of  Commons.  Secondly, 
the  Board  was  partial.  Thirdly,  the  Board's  action  constituted 
undue  and  petty  interference.    He  moved  this  resolution: 

This  meeting  of  the  Retail  Licensed  Trade  of  the  Metropolis  strongly 
protests  against  the  drastic  new  liquor  restrictions  imposed  by  the  Central 
Control  Board  (Liquor  Traffic)  in  the  London  area,  on  the  grounds  that 
they  arc  unnecessary  and  unjustifiable;  that  they  are  calculated  to  arouse 
the  indignation  and  resentment  of  the  masses,  who  are  being  deprived  of 
their  rights  and  privileges  under  cover  of  the  war  for  no  useful  pu-pose 
whatever;  that  they  involve  serious  inconvenience  and  discomfort  to  ill 
classes  at  a  time  of  great  physical  and  mental  strain  when  any  form  of 
compulsion  is  all  the  more  objectionable  and  dangerous;  atid  that  they  will 
inflict  needless  injustice  upon  a  loyal,  necessary,  and  legitimate  trac'  vviithout 
in  any  way  tending  to  achieve  success  in  the  great  national  struggle  in  which 
our  empire  is  engaged. 

Referring'  to  the  order  of  the  Boanl  restricting  the  liqtior 
traffic  in  the  London  aiea,  tlie  same  issue  of  the  Alliance  Ncu'S 
says  tiiat  on  Xovemher  26  a  trade  union  deputation  calls  on 
the  Central  Control  Board.  Cine  delegate  says,  "I  have  heard 
the  exjiression  used  on  buildings  by  men  who  have  sons  fighting 
at  the  front  that  there  are  a  number  of  vacant  himp  posts  in 
W'hitehah.  That  is  an  expression  of  opinion,  but  if  this  order 
does  become  operative,  it  is  going  to  engt  der  a  feeling  stronger 
than  that!"  Whereupon  the  members  o.  the  Board  smiled! 
.\nother  delegrUe  said,  "1,  for  one,  feel  so  strongly  over  this  that 
if  we  have  got  to  have  it,  and  if  the  resistance  results  in  mv  being 
led  to  ga<il,  I  am  willing  to  go.  I  proinise  you,  in  that  event, 
unless  you  loci'  us  all  up,  one  of  the  most  tremendous  agitations 
that  ever  convulsed  this  metropolis.  .  .  .  Speaking  for  manv 
thousands  in  this  country,  as  well  as  myself,  I  say  to  you:  Bv 
(iotl.  we  will  give  you  the  hardest  and  bitterest  fight  you  have 
ever  had  before  we  submit  to  your  abominable  despotism." 

Lord  D'Abernon  replied  in  very  courteous  terms.  He  re- 
gretted that  "the  speeches  had  been  rather  barren  of  practical 
suggestions."  He  said  the  measures  were  not  punitive,  but  cal- 
culated to  increase  efficiency,  and  that  the  Board  did  not  intend 


62  (.OVhRNMl-M     ruNTKOl.    UK    THK    I-IOIOK     lUSlNKSS 


1:i, 


\ 


to  c'osc  the  iHiblic  huu^cs,  but  only   to  restrict  hnurs  of   sale. 

He  said: 

In  no  -ingle  area  where  these  orders,  or  orders  similar  to  them,  have 
been  in  force  has  there  been  a  single  voice  of  protest  frnm  any  worker; 
and.  I  think,  if  you  will  inquire,  you  will  find  that  the  large  majority  of  the 
steady  workmen  in  those  areas  welcome  the  order  enthusiastically. 

He  concluded: 

It  is  quite  out  of  our  power  to  meet  you  on  the  general  withdrawal  of 
the  order.  That  is  out  of  the  qi-stion.  But  the  Board  have  always  been, 
and  are,  readv  to  consider  sympathetically  any  special  exemptions  or  arrange- 
ments that  may  be  necessary,  and  that  can  be  shown  to  be  just  and  fair  to 
the  general  interest  in  order  to  meet  the  abnormal  conditions  of  particular 
trades. 

In  the  Fortnightly  Rcriczc  for  January,  1916,  Mr.  H.  J.  Jen- 
nings quotes  police  court  figures  to  prove  that  the  greatest  per 
cent  of  intemperance  does  not  exist  anirmg  munition  workers. 
He  admits,  hov  ver,  that  his  figures  are  not  C(  inclusive.  He 
claims  that  increased  sobriety  will  cover  only  the  cost  of  less 
revenue  from  excise  duties,  and  eoncludes  by  saying  that  added 
restrictions  on  the  industry  will  ruin  it  and  the  taxpayers  will 
have  to  make  good  the  loss,  that  beer  is  a  food  and  neccs-ary,  and 
that  drunkards  form  only  a  very  small  per  rent  of  the  workers 

The  New  York  Tiiius  for  February  16,  1916,  says  that  the 
movement  for  "practical  pn.hibitinii  during  tlie  war"  will  receive 
little  support  from  the  established  Church,  according  to  the  Con- 
v(xation  of  the  Archbishop  of  Canterbury  held  in  London  Fel)- 
ruary  15,  1916;  that  the  House  favrs  "moderation  and  self- 
denial"  but  not  proi.ibition.  It  also  (|uotes  from  Athelstan  Riley, 
a  prolific  writer  on  religious  topics,  to  the  effect  that  drink  re- 
formers alwavs  go  too  far,  and  that  alcohol  itself  is  n(^t  an  evil, 
being  one  of  the  "good  creatures  of  God,"  and  only  evil  when 
used  to  excess. 


CHAPTER    III 

What  Was  Done  by  the  Government — The  Repression 
of  Drunkenness 

The  conditions  ilescrihcd  in  Cliaptcr  I  and  the  afi;it<'ite<l  state 
of  tiio  pubhr  mind  as  described  in  Chapter  II  made  it  necessary 
that  the  j^'overnment  should  do  something  about  it.  A  govern- 
ment which  is  responsible  to  the  people  can  never  go  very  far 
in  the  carrying  out  of  any  policy,  however  wise,  unless  the  people 
are  behind  it.  Whatever  the  government  or  its  responsible  min- 
isters may  have  thought  about  the  effects  of  this  vast  trade  in 
alcoholic  li(iuorr,  upon  the  efficiency  of  a  nation  at  war,  it  must 
of  necessity  wait  upon  public  oi)inioii.  Public  opinion,  however, 
as  expressed  through  its  constituted  organs,  the  newspapers, 
seems  to  have  been  very  much  divided.  So  many  contradictory 
opinions  were  expressed  as  to  make  it  well  nigh  impossible  to 
forecast  its  real  verdict  upon  the  question  of  liquor  control.  The 
only  thing  which  seemed  clear  was  that  the  government  must  do 
something  about  it. 

The  machinery  of  legislation  in  England  is  such  as  to  prevent 
hasty  action  and  insure  thorough  consideration,  giving  people 
of  every  shade  of  opinion  an  opportunity  to  express  themselves 
and  to  make  their  influence  felt. 

In  such  a  crisis  as  that  which  was  thrust  ujxm  England  in 
August,  1914,  however,  the  fate  of  tlie  nation  depended  upon 
prompt  action.  How  to  secure  promptness  and  at  the  same  time 
preserve  responsibility  to  the  people  was  a  ([uestion  of  the  utmost 
importance.  Parliament  was  too  large  a  body  to  act  promptly; 
besides,  parliamentary  debates  are  not  only  long  winded  but  cal- 
culated to  acquaint  the  enemy  with  the  internal  conditions  of  the 
country.  As  on  all  such  occasions,  the  problem  was  solved  by 
giving  unuFual  powers  to  som.e  administrative  office  or  organiza- 
tion, such  as  the  King  in  Council  or  to  the  Privy  Council,  as  it 

63 


^'  .'■:■ 


(A  COVKKNMICNT    CONTKOI.    OF    TllK    l.igrOR    lUSlM-SS 

is  Kt-ncrallv  kiiouii.  In  such  c;i>cs  the  Privy  Cumil  is,  in  theory. 
iiniKAvircil  t(.  t;iki-  such  measures  upon  the  prescribed  topics  a. 
..em  t..  it  wise.  In  tact,  it  i>  the  Cahinet  representing  the  party 
in  power  which  acts,  though  it  acts  in  the  name  uf  the  King  in 

Council. 

In  the  following  pages  we  shall  attempt  to  trace  various  steps 
in  the  development  of  liquor  control  by  the  British  Covernment. 

War  was  declared  on  August  4,  l'>14.  On  the  same  day  was 
issued  a  Defense  of  the  Realm  Proclamation  calling  upon  all 
loyal  subjects  to  obey  and  conform  to  all  instructions  and  regu- 
lations which  miglit  be  issued  by  the  government  or  tlie  .\d- 
miraltv  or  Army  Council  or  any  <.t1icer  of  the  navy  or  army, 
f,,r  securing  the  public  safety  and  the  defense  of  the  realm. 

Inur  davs  later,  August  8,  Parliament  passed  the  first  of  a 
series  of  Defense  of  the  Realm  .\cts  conferring  upon  the  King 
in  C.nmcil  power  to  issue  regulations  for  securing  public  safety 
and  the  defense  of  the  realm. 

The  first  of  the  regulations  authorized  by  this  act  which  were 
directed  towaril  the  control  of  the  drink  trade  was  issued  August 
\2.     Section  7  reads: 

The  c..nil>etf,u  naval  nr  military  authority  may  by  order  require  all 
premise,  liceuse.l  for  the  sale  of  intoxicatuiK  liquor  withui  or  >n  the  .rmkU- 
l„,rhood  of  any  defended  harhor  to  be  closed  e.xccpt  dnnna  such  hour.s  as 
mav  be  specified  in  tlie  order.' 

This  was  extended  on  November  2S,  1914,  as  f.Jlows: 

The  competent  naval  or  military  authority  may  by  order  require  all 
or  an<  premises  licensed  for  the  sale  of  intuxicatins  liquor  w>thn>  .any  area 
specified  in  the  or.ler  to  be  closed  e.xcept  during  such  hours  and  f''  ^"'" 
purposes  as  mav  be  specihcd  in  the  order,  nlher  gccn-Hy  or  as  rcsr.^.ts  llw 
„u;nl,crs  of  any  of  l,is  Majesty's  fores  ,„n,Uo,u-d  w  ,hc  order,  an.  i.  the 
holder  of  the  license  in  respect  of  any  such  premises  fails  to  comply  lalh 
,lu-  or.<,-r  he  Shalt  be  .mlty  of  a„  offense  under  these  re,,ulalwns.  and  the 
competent  naval  or  military  authority  may  cause  such  steps  to  be  taken  as 
may  be  necessary  to  enforce  compliance  with  the  order.^ 

.  From"  "The  I^fense  of  the  Realm  Rj^^"'-''''""^"  '''';*(.='^,,l""u7'''  '" 
the   Manual  of  llmer^enex  I.e,„slol,on  to  September  .W    1<    4.  paKe  147 

■^I'rom  "The  Defense"  of  the  Realm  (t.onsob<lation\  Keffulations.  1914 
Section  To,  as  contained  in  Manual  of  Hmer.jency  Lc,j,slal,on.  Supplement 
2,  paKe  1U7. 


GREAT    BRITAIN 


65 


TIk'  .-ultlitidiis  arc  italicizeil. 

Till-  next  stajjc  in  the  devclopnient  of  legislative  control  was 
the  enactment  on  August  31,  1914,  of  what  is  known  as  tlie 
Intoxicating  Li(|uor  (Temporary  Control)  Act,  1914,  giving  the 
licensing  justices  power  to  suspend  the  license  of  any  retailer,  and 
to  stop  the  i-onsumption  of  liijuor  in  any  cluh.  whenever  it  was 
ilecmed  necessary  for  the  maintenance  of  order  and  the  suppres- 
sion of  drunkenness. 

The  ,ut  reads  as  follows: 

IXTOXILATING   LIQUOR    (TEMPORARY   RESTRICTION)    ACT, 

1914' 

All  Act  tn  enable  orders  to  be  made  in  connection  with  the  present  war  for 
restricting  the  sale  or  consumption  of  intoxicating  liquor.  (Jlst  August, 
1914.) 

He  it  enacted  by  the  King's  Most  l-.xcellent  Majesty,  by  and  with  the 
advice  and  consent  of  th<?  Lords  .Spiritual  and  Temporal,  and  Commons,  in 
this  present  Parliament  assembled,  and  by  the  authority  of  the  same,  at 
follows : 

1.  (1)  The  licensing  justices  for  any  licensing  district  may,  if  they  think 
fit,  upon  the  recommendation  of  the  chief  officer  of  police  that  it  is  desirable 
for  the  maintenance  of  order  or  the  suppression  ol  drunkenness  in  any  area, 
by  order  direct  that  the  sale  or  consumption  of  intoxicating  liquor  on  the 
premises  of  any  persons  holding  any  retailers'  license  in  the  area,  and  the 
supply  or  consumption  of  intoxicating  liquor  in  any  registered  club  in  the 
area-,  shall  be  suspended  while  the  order  is  in  operation,  during  such  hours 
and  subject  to  such  conditions  or  exceptions  (if  any)  as  may  be  specified  in 
the  order: 

Provided  that,  if  any  such  order  suspends  the  sale,  supply,  or  consump- 
tion of  intoxicating  liquor  at  an  hour  earlier  than  nine  at  night,  the  order 
shall  not  have  effect  until  approved  by  the  Secretary  of  State. 

(2)  If  any  person  acts  in  contravention  of,  or  fails  to  comply  with,  any 
order  under  this  section  he  shall  be  liable  on  summary  conviction  in  respect 
of  each  offense  to  a  fine  not  exceeding  fifty  pounds.  If  any  person  feels 
aggrieved  by  a  conviction  under  this  section  he  may  appeal  therefrom  to 
quarter  sessions  in  accordance  with  the  Summary  Jurisdiction  Acts. 

(3)  The  licensing  justices  shall  have  power  to  make  an  order  under  this 
section  at  their  general  annual  licensing  meeting  or  at  any  special  sessions 
held  by  them  for  the  purpose  of  their  duties  under  the  Licensing  (Consolida- 
tion) Act,  1910,  or  at  any  meeting  specially  called  for  the  purpose  under 
this  act. 

M  &  5  Geo.  \-,  c.  77,  page  390. 


f)6 


)\K.K\MKNT    to 


NTKOl.    OK    THK    I.KJIOU    UISINESS 


1  he  clerk  ti 


tin-  licinsiiiK  jur.tices   shall   s| 


ally 


■all  such  a  meeting  i 


made  to  him 
;f  (irtic 


for  the  puriiose  either  by  any  two 
for  the  district. 


an  application  in  writniK  is 

of  their  number  or  by  the  chief  officer  of  police  ,  ,        ,       .u 

(4)   In  the  application  of  this  section  t..  the  county  of  L.,ndon  the 
tnittee  of   the   compensation   authority   appointed   under   section   six   of    the 
Licensing    (Consolidation)    Act,   1910,   shall   be   substituted    for   the   licensing 

'"'T{\)  In  this  act  the  expression  "retailers'  license"  means  ^"V  ''I  ;;;^ 
retailers'  licenses  specified  u,  the  First  Schedule  to  the  l-inance  OW-DW) 
Act,  1910,  and  the  expression  "chief  officer  of  police  — 

(a>   with  respect  to  the  city  of  Lon.lo,,.  means  the  r„,nmissioner  of 

the  Citv  Pcdice;  and  . 

(b>  elsewhere   in   England,  has   t.  .    same  meaning  as   m  the    1  olue 

Act,  18'X). 

(^)  In  the  application  of  this  act  to  Scotland,  the  Secretary  for  Scotland 
shall'  be  substitute!  for  the  Secretary  of  State,  and  the  licensing  court 
shall  be  substituted  for  the  licensing  justices,  and  the  genera  halt-yearly 
meeting  of  the  court,  or  any  adjonrument  thcrof.  shall  be  substitute-  or 
,he  general  annual  licensing  meeting:  "sheriff-depute"  shall  be  substituted 
for  "hief  officer  of  police";  the  reference  to  an  appeal  to  quarter  K.s.ons 
shall  not  app-.v;  "summary  conviction"  means  summary  conviction  ,n  the 
sheriiT  court;  "Intoxicating  liqu-r"  means  excisable  liquor,  and  retailers 
license"  m-ans  certificate  as  defined  in  Part  VII  of  the  Licensing  (Scotland) 

^"'('Mn  the  application  of  this  act  to  Irelan,l  the  Lord  Lieutenant  shall 
be  substituted  for  the  Secretary  of  State,  and  the  expression  "licensing  dis- 
trict" means,  as  resiiects  the  police  district  of  Dublin  metrop.dis.  that  district 
and  elsewhere  in  Ireland  the  petty  sessions  district.  The  expression  chief 
officer  of  police"  means,  as  respects  the  p.dice  district  of  Dublin  metropolis, 
either  of  the  commissioners  of  police  for  that  district,  and  elsewhere  in 
Ireland,  a  .listrict  inspecMr  of  the  Royal  Irish  Constabulary,  and  the  ex- 
pression "licensing  justices"  means,  as  respects  the  police  district  of  Dublin 
metropolis,  the  Recorder  of  the  city  of  Dublin,  and,  as  respects  any  other 
licensing  district,  two  or  more  justices  at  petty  sessions. 

(4)  This  act  may  be  cUed  as  the  Intoxicating  Liquor  (temporary  Re- 
striction)  .\ct,  1914.  ,„.„„, 

(5)  This  act  shall  remain  in  force  during  the  continuance  of  the  present 
war.  and  lor  a  period  of  one  month  after  the  close  thereof. 

Tlie  third  stage  in  the  government  control  of  the  liqtior  trade 
wa>^  reaclied  wlun  Parliament  gave  the  Council,  that  is,  in  effect, 
the  Cabinet,  a  free  hand  to  de;d  with  the  question  as  it  saw  fit. 
The  variuus  IX^fense  of  the  Realm  Acts  had  been  consolidated 
on  November  27,  1914.     On  May  19,  1915.  that  act  was  ex- 


<.r<KAr  niMTAiN- 


67 


tciuk'd  M.  as  to  give  the  Council  [x.wcr  spiiilkally  to  i>suc  rcgu- 
laiiMtis  for  the  control  of  tlie  trade  it)  intoxicating  lifiuor. 
riie  following  is  a  text  of  the  act: 

A\  ACT  TO  EXTEND  THE   DEEEXSK  OF  THE  REALM 
CONSOLIDATIOX  ACT,  1914' 

(19tli  May,  1915) 
Statk  Co.ntkoi.  Of  LiijroR  Traue  in  Certain  Areas 

1(1)  Ulicrc  it  appears  to  his  Majesty  that  it  is  expeflient  for  the 
purpose  ..f  the  successful  prosecution  of  the  present  war  that  the  sale  and 
supply  of  intoxicatiuK  liquor  in  any  area  should  be  controlled  tiv  the  stale 
on  the  ground  tliat  war  material  is  heini;  made  or  loaded  or  unloaded  or 
dealt  with  in  transit  in  the  area  or  that  men  belonging  to  his  Majesty's 
naval  .ir  military  forces  are  assembled  in  the  area,  his  Majesty  has  power 
by  Order  in  Council,  to  define  the  area  and  to  apply  to  the  arja  the  regula^ 
tions  issued  in  pursuance  of  this  act  under  the  Defense  of  the  Realm  Con- 
solidation Act.  1914,  ,,nd  the  regulations  sn  applied  shall,  subject  to  any 
liroy.sions  of  the  order  or  any  amending  order,  take  effect  in  that  area 
.luring  the  continuance  of  the  present  war  and  such  period  not  exceeding 
twelve  months  thereafter  as  may  be  declared  bv  Order  in  Council  to  be 
necessary  in  view  of  conditions  connected  with  the  termin?:ion  of  the  present 
war. 

(2)  His  Majesty  in  Council  has  power  to  issue  regulations  under  the 
Defense  of  the  Realm  Consolidation  Act,  1914,  to  take  effect  in  any  area 
to  which  they  are  applied  under  this  act : 

(a)  for  giving  the  prescribed  government  authority,  to  the  exclusion 
of  any  other  person,  the  power  of  selling  or  supplying,  or  controlling  the 
sale  or  supply  of,  intoxicating  |i<|uor  in  the  area,  subject  to  any  exceptions 
contained  in  the  regulations:  and 

(b)  for  giving  the  prescribed  government  authority  power  to  acquire 
campulsordy  or  by  agreement,  and  either  for  the  peri,.d  during  which 
the  regulations  take  effect,  or  permanently,  any  licensed  or  other  premises 
or  business  m  the  area,  or  any  interest  therein,  so  far  as  it  appears  neces- 
sary or  expedient  to  do  so  for  the  purpose  of  giving  proper  effect  to 
the  control  erf  the  lir|unr  supply  .'n  the  area;  and 

(c)  for  enabling  the  prescribed  government  authority,  without  any 
license,  to  establish  and  maintain  refreshment  rooms  for  the  supply  of 
refreshments  (including,  if  thought  fit,  the  supply  of  intoxicating  liquor) 
to  the  general  public  or  to  any  particular  class  of  persons  or  to  persons 
employed  in  any  particular  industry  in  the  area;  and 

(d)  for  making  any  modification  or  adjustment  of  the  relations  be- 

'  Public  General  Acts  S  &  6  Geo.  V,  page  79. 


6.S  (ioVKKNMl.NT    IDNTUOl.    OK    THK    l-KJl""    lUSlNKSS 

tween  persons  mtcroMc.l  in  li>ens.M  premi.o.  in  tlie  area  which  appears 
necessary  or  expe.licnt  w  consequence  of  the  regulations;  and 

(e)  «enerallv.  for  KivitiK  etTect  to  the  transfer  of  the  control  of  the 
]i,|u,.r  tratik  in  the  area  t,.  the  prescnhcd  government  authority,  and 
for  modifvinK.  s..  far  as  it  appears  necessary  or  expedient,  the  provismns 
of  the  acts  relating  to  licensing  or  the  sale  of  intoxicatnig  liquor  in 
th'.ir  applicition  to  the  area. 

(3)  Any  regulations  made  hefore  the  passing  of  this  act  un.ler  the 
powers  conferred  hy  any  act  dealing  with  the  Defense  of  the  Realm  as 
respects  the  restriction  of  the  sale  of  intoxicating  hquor  are  hereby  declared 
to  have  been  duly  made  in  accordance  with  those  powers. 

SlKlKT   TlTIF 

2.  This    act   may   he   ciled   as    llie    Defense   of   the    Realm    (Amendment) 
(No.  i)   Act,  141.T 

It  will  be  (.hserved  that  this  act  -ave  the  "KinR  in  Council." 
that  is.  in  effect  the  Cabinet,  power  !)>•  Order  in  Ccnincil.  to  regu- 
late the  liquor  traffic  in  certain  prescribed  areas  and  on  certain 
specified  grounds.  It  will  be  further  noticed  that  the  "Council" 
(the  Cabinet)  was  not  conii>elled  to  act  directly  in  the  matter  but 
might  act  through  "the  prescribed  government  authority."  This 
procnlK-d  government  auth.jrity  might  be  empowered  by  the 
Cabinet 

(a)  to  Like  over  the  liquor  business  as  a  government  monopoly  within 

^'^Oo'to   uke^possession  of   any   property   or   premises   used   in   the   liquor 

business. 

(c)  to  run  refreshment  rooms.  ,   •        .      .l. 

(d)  to    modify   the   terms    of    the   existing   regulations   applying   to   the 

liquor^ tradcv^  practically  anytliing  else  necessary  to  give  effect  to  this  control 
or  regulation. 

The  prescribed  government  authority  was  not  named  in  the 
act  The  Council  ( Cabinet )  was  apparently  left  free  to  emp.  -wel- 
come existing  branch  of  the  govenunent  to  take  over  the  control 
of  the  li.iuor  business,  or  t  ^  create  a  new  branch  for  that  purpose. 
It  chose  the  latter  alternative  and  created  a  board  which  is  ofli- 
cidly  known  as  the  Central  Control  Board  (Liquor  Traffic). 
Hereafter  in  this  monograph  it  will  be  called  the  Board. 


(IKKAT    HKIIAIN' 


69 


The  text  of  the  Order  in  Council  cnatiti),'  this  I'l.anl  follows:' 
THK  i)r:i-Kxsi-:  oi-  thk  rkai.m  (I.iol'dk  contkdi.) 

KKCL'LATIOXS.  I'^.S 
I'il.i      No.  55J 
At  the  Court  at  liiuUiiiKliam  ralacc,  tlic  Uhh  dav 


.f  ?iii 


le. 


lOlS 


I'resciit, 
The  King's   M..si  Kxcelleiit  Majesty  in  Cuiimil 

liy    the    Defense   of    the    Realm    Consolidation    Act,    1914,    hn 

power  (luring  the  continuaiK-e  nf  the  presen'  war  to 

safctN   and  defense  of  the  realm; 


\\  hereas 
Majesty  in  Council  h 
issue   regulations   for  securing  the  pulilic 


Whereas,  liy  the  Defense  of  the  Realm  (Amendment)  (No.  3)  Act, 
1915,  his  Majesty  in  Council  has  power  to  issue  regulations  imder  the  first- 
mentioned  act.  to  take  effect  in  any  area  to  which  they  are  applied  under 
the  said  .\merdment  Act,  for  the  purposes  of  the  control  !iy  the  state  of  the 
sale  and  supply  of  intoxicating  liquor  within   the  area;  and 

Whereas,  I'or  the  pur|Kise  of  increasing  directly  or  indirectly  the  effi- 
ciency of  lahor  in  such  areas,  ami  preventing  the  efficiency  of  lahor  in  such 
areas  from  lieing  impaired  tiy  drunkenness,  alcohrdism,  or  excess,  it  is  exjie- 
dient  to  make  such  regulations  as  are  hereinafter  contained; 

Now,  therefore,  his  Majesty  is  pleased,  hy  and  with  the  advice  of  his 
Privy  Council,  to  order,  am!  il  is  herehy  ordered,  that  in  every  area  to  which 
these  regulations  are  aiiplied  hy  an  (Irder  in  Council  made  under  the  De- 
fense of  the  Realm  (.\mendment)  (\o.  3)  Act.  1915,  the  following  provisions 
shall  have  effect  : 

1.  The  prescribed  government  authority  shall  he  a  Roard  to  he  called  the 
Central  Contrcd  Hoar<l  (Liquor  Traffic)  hereinafter  referred  to  as  "the 
Board,"  consisting  of  a  chairman  and  such  persons  as  the  Minister  of 
Munitions  may  from  time  to  time  appoint. 

The  quorum  of  the  Board  shall  I*  such  as  the  Board  may  deternin-.  and 
the  Board  may  regulate  their  own  procedure,  and  no  act  or  proceeding  of 
the  Board  shall  he  questioned  on  account  of  any  vacancy  in  the  Board. 

The  Board  may  sue  and  he  sued,  and  shall  have  an  official  seal  which 
shall  he  officially  and  judicially  noticed,  and  such  seal  shall  be  authenticated 
hy  any  twci  members  of  the  Board  or  the  Secretary  to  the  Board. 

The  Board  may  appoint  a  secretary  and  such  officers,  inspectors  and 
servants  for  the  purpose  of  these  regulations  as  the  Board,  subject  to  the 
approval  of  the  Treasury  as  to  number,  may  determine. 

Every  document  purporting  to  he  an  order  or  other  instrument  issued 
hy  the  Board  and  to  be  sealed  with  the  seal  of  the  Board  authenticated  in 
manner  provided  by  these  regulations,  or  to  he  signed  hy  the  Secretary  to 
the  Board  or  any  person  authorized  by  the  Board  to  act  on  behalf  of  the 
Secretary,  shall  be  received  in  evidence  and  be  deemed  to  be  such  an  order 
or  instrument  without  further  proof  unless  the  contrary  is  shown. 

'  In  the  Manual  of  Emergency  Legislation,  Supplement  4,  page  167. 


70  r.OVlKNMIM     (UMUOI.    OF     1111      llnMiK     lUMMsS 

A,.y  ,.r„,K.rt>   ao„„rol  1.   .lu-  l:..,>r-l  shall  ),o  v.-s.cl  ..,  HUch  ,«■.  or  njnu- 

,,,lulf  for  .he  purpoM-.  a,Hl  upw,  .!»■  .l.a.h.  r..«,u,.,..n.  -r  ^^■— '  "  '  » 
truMrc-  the  property  ^.Me,l  m.  tlia.  tru.l.-r  «l^.ll.  >^nU..n  o„ne.a  ,..■  or  as.,«„ 
,„,,„,  ,„,,  „.h„her  .he  proper.v  ,-  rral  or  p,  , -„.,al  s>M  ."  On-  -  -'d">« 
„„.,..es  .....her  s,.lely  or  .o,.-.h.r  «,.h  an.^  M.r.nu.K  or  <.„.,„>„„.  .r„~teev 
a,„l,  .,...,1  .he  a|,pon,.,m-„.  of  Ma-cee,ln,«  truMccs.  shall  s.,  v.-s.  „,  ,h,-  s„ruv- 
,„K  or  s,u.ee.l,n,  .rus,...  „nly  ;  a,ul  m  all  U«al  proceechn^s  «hatso..er  eon- 
eer.un,  a,n  p.op.r.y  ws.ol  ,„  .he  ,r„s.e..s  ,lu-  proper.y  may  Le  ^•■;  -'  "'^ 
,he  prnp.-nv  of  ,h.-  .rii^r.s  ,n  .hor  pmpcr  naine^  as  .n.s.ees  for  .he  Hoar  1 
wni.iut   lurlher  .lesenp.ioii.  ■        t       ,  ,,,,.., 

.'       l-ur  .he  purposes  of  ihe  ,o„trol  ,.f  .he  sale  an,!  s„pp,v  „f  ,.,lo^„a.^,. 

h,|,ior  .11  any  area,  .lie  I'-ar.!  l.la^   h>   or.jer- 

,a,  .liree.  tha.  a„>  l.ee„se.l  pren„ses  or  eh.h  ,.,  .he  area  „  ^.  1. u  h 
in,ox,ca.i;.K'  l.'P-r  ,s  s„M  hs  re.a.l  or  s.,pphe,l  shall  he  close.l  e.lher 
for  all  piirpo.e>  or  .or  the  purpose  of  -.:>  h  sale  or  s„pply; 

(h)  renula.e  .he  hours  ,h...uu  «liich  any  snch  premises  or  eU.l.s 
arc  to  he  or  tuav  he  kep.  opeu  ,l.s..u^;.,ish,nK,  where  ,.  -s  .,  .le.ernuue.l 
be.wetn  the  hours  Mur.UK  which  the  premises  are  to  he  or  ,na>  W  Kept 
open  for  such  sale  or  supply  as  aforesa,.l.  and  the  hours  .lur.UK  whuh  they 
are  to  he  or  mav  he  ke,,t  open  for  other  purposes,  an.l  any  M,ch  onler  shall 
huNe  effect  no.wi.h^.a.uhnK  a.-.>  .^.il.K'  in  ihe  law  relating  to  hcens,n«  or 
the  sale  of  in.oxicatiuK  liquor;  ,-    ,     , 

(c)   proh.hit   the   sale   hv    re.a.l   or    nipply   of   any    spec.t.e,     das.   or 
description  of  in.oxica.n.w  l'<luor  in  an>  licensed  prcm.ses  or  cluh  .n  the 

^'"d.  provide  that  the  sale  hy  retail  or  supply  of  in.oxica.iuK  liquor 
in  arv  licensed  prem.se;  or  cluh  in  the  area  shall  he  suhjec.  to  such 
conditions  or  restrict.ous  as  mav  he  imposed  hy  the  order; 

(e)  rcKulate    the    ...tnuluct.o.,    of    in.oxicatin.,-    hquor    .nto    the    area 
and  the  transport  <.f  iutoxicatiuK  h'inor  within  the  area; 

(f)  require  the  husincss  carrie-l  ou   in   any   licensed   prcm.ses   ...   the 
area  to  be  carried  on  suhject  to  the  super^isi„n  of  the   I'.oard ; 

and  anv  such  order  may  include  such  incidental  a,.d  supplemental  provisions 
as  appear  to  the  Hoard  necessary  for  the  purpose  of  g.vmK  full  ef^ec  o 
the  order,  and  may  he  made  applicable  t,.  all  licensed  premises  a.,d  ch.hs 
withm  the  area  or'  any  specified  class  or  description  of  such  premises  and 
clubs,  or  to  anv  particular  premises  or  club. 

H  anv  person  contravenes  the  provisions  of  any  such  order  or  any  con- 
ditions or  restrictions  imposed  thereby,  he  shall  '^e  guilty  „f  a  summary 
offense  aRainst  the  Defense  of  the  Realm  (Consolidation)  Kegu lat.ons,  U14 
3  The  Hoard  mav  bv  order  prohibit  the  sale  hy  retail,  <.r  the  supply  ... 
clubs  or  licensed  premises,  of  intoxicating  liquor  within  the  area,  or  anv 
part  the.eof  specified  in  the  order,  by  any  person  other  than  the  Hoard,  :.i,d 
if  any  person  contravenes  or  fails  to  comply  with  the  or.ler  he  shall,  w.tho.i, 
preiMdi-e  to  anv  other  penalty,  be  guilty  of  a  summary  offense  aga.nst  the 
l.efen>e  of   the   Realm    (CoUv.Udat.c        Regulations.   VAA. 


t.l;K\l     IIKIIAIN 


rr.ivido.l    tliat    the   onler 


Ml.lN     fxic 


spci'ihiil  rias'  nr  cl.issrs  nf  jirrii 


Pt    fru 
■  olulis 


the    nrmisidns    itic.'cof 


.my 


4.  The  Hoard  may  liy  order  make  sii.  h  provisions  as  they  think  iH-ccss.ir  • 
for  the  prevention  ,.|    the   practue  of   treatiiiK   within   the  area,   and   if  any 

IS   of  any   sncli   order   he   shall   he   Kuilti    of 


pers 


contravenes    the    pro 


a  siiminarv  olleiisc  aKaitist  the  l)efeiise  of  the  Re.ilm   ( t 'onsoli<lation  »    K 


lati< 


\'>U. 


5.  The  hoard  may  either  themselves  or  throiiKh  any  awents  e-tahh-h  and 
maintain  in  the  area,  or  provide  for  the  estahhsiiment  and  maintenaike  in 
the  area  of,  refreshnieni  rooms  for  the  talc  or  suppl)  of  refreshments 
(inrludinK,  if  thought  tit,  the  sale  or  supply  of  intoxicating  liipior)  to  'he 
Keneral  piihlie.  or  to  any  particular  class  of  persons,  or  to  jiersons  empl,.w'.| 
in  any  particular  industry  in  the  area. 

6.  Where  the  l!<jard  consider  that  it  is  nee  ssary  or  expedient  for  the 
purpose  of  Kivintf  proper  etTect  to  the  control  of  the  liipior  supply  m  the 
area,  they  may  accjuire  compulsor.ly  or  li>  agreement,  either  for  'he  period 
during  which  these  rcK'nIations  take  ellcct  or  permanently,  any  licensed  or 
other  jirernises  in  the  area,  or  any   interest   in  any  such  premises  : 

Provided  that  the  Hoard  may,  in  lieu  of  aci|uiriiiK  any  interesi  in  such 
premisis,  t.ike  possession  of  the  premises  and  aiiv  plant  used  for  the  purposes 
of  the  hiisiness  carried  on  therein  for  all  or  am  jiart  of  the  period  during 
which  these  rcKulations  take  effect,  and  use  them  for  the  sale  or  supply 
of  iiitoxiralin>t  li(|uor  or  for  the  purpose  of  any  of  the  other  pow,-rs  and 
duties  of  the  Board. 

/.  Where  the  Hoard  determine  to  acquire  compulsorily  any  premises  o. 
any  interest  therein,  the>  shall  serve  on  the  occupier  of  the  premises  and, 
if  ,-■  ,  person  other  than  the  occupier  will  he  afTected  hy  the  acquisition  of 
the  interest  propose<l  to  be  accpiired,  also  on  any  person  who  appears  to  the 
Hoard  to  he  so  affected,  notice  of  their  intention  to  acquire  the  premises, 
or  such  interest  therein  as  may  l)e  specified  in  the  notice,  and  where  s.ich  a 
notice  is  served,  the  fee  simple  in  possession  of  the  premises  or  such  interest 
in  the  premises  as  aforesaid  shall,  at  the  expiration  of  ten  days  from  the 
service  of  the  notice  on  the  occupier,  by  virtue  of  these  regulations  vest  in 
the  trustees  for  the  Fioard.  subject  to  or  freed  from  any  mortgages,  rights, 
and  interests  affecting  the  same  as  the  Board  may  hy  order  direct. 

On  any  premises  or  any  interest  therein  becoming  so  vested  in  the  trustees 
for  the  Hoard  the  trustees  may — 

(a)  if  the  title  to  the  premises  is  registered  under  the  Land  Registry 
Act,  l»).',  or  the  Land  Transfer  .\cts,  I87.S  and  1897,  enter  a  caveat  or 
caution  to  prevent  their  estate  or  interest  from  being  impaired  by  any  act 
of  the  registered  proprietor;  and 

(b)  if  the  premises  are  situate  in  an  area  where  registration  of  title 
is  compulsory  lodge  a  caution  against  registration  of  the  premises;  and 

(c)  if  the  premises  are  within  the  jurisdiction  of  the  acts  relating  to 
registration  of  assurances  in  Middlesex  and  Yorkshire  register  in  Middle- 
sex a  memorial  of  the  notice,  and  in  Yorkshire  an  affidavit  of  vesting 
against  the  name  of  every  person  whose  estate  or  interest  is  affected, 
and  in  Mi<ldlcsex  any  such  notice  shall  l)c  deemed  a  conveyance. 


(rOVKKNMF.NT    CfiMUOI.    OT    Tlli-.    I-KjlOK    HISINESS 


A  copv  of  the  Miinute.  of  the  I'.our.l  to  the  otTcct  that  a  ii-tice  has  been 
cerved  in' accor.laiice  with  this  regulation,  certified  hy  tlie  secretary  to  the 
I'.oard  or  U  anv  iK;rson  auth,.rized  hy  the  Hoard  to  act  on  i.ehalt  of  the 
secretary,  to  he  a  true  a:py.  shall  he  evidence  that  the  jiremises  or  interest 
therein   mentioned   in   the   minutes   have   hecome    vested   in   tiie   trustees    for 

the  Hoard. 

8  Where  the  Board  consider  that  it  is  necessary  or  expedient  for  the 
purpose  of  giving  pn.per  effect  to  the  control  of  the  liquor  traffic  in  the  area 
they  mav.  hv  the  like  procedure,  acquire  ain  hnsiness  (including  stock  in 
trade)  carried  on  in  anv  premises  within  the  •rea.  whether  or  lu.t  they  take 
possession  of  or  aciui..  the  premises  in  which  such  husiness  is  carried  on, 
or  anv  interest  in  the  premises. 

9  The  r.oan!  mav.  without  ^ny  license  (whether  justices'  or  excise,  and 
whether  for  the  sale  of  intoxicating  li.,uor  or  otherwise!,  carry  on  in  any 
premises  occupied  hv  them  any  business  involving  the  sale  or  supply  of  in- 
•oxicating  liquor,  refreshments  or  tobacco,  and  for  that  purpose  shall  not  be 
su,.ject  to  any  of  the  provisions  of  the  law  relating  to  licensing,  or  to  any 
restrictions  imposed  by  law  on  persons  carrying  on  such  business. 

\ny  person  appointed  by  the  Board  to  conduct  any  business  on  their  be- 
half siiall  have,  to  such  extent  as  they  may  be  conferred  by  the  Board,  the 
same  powers  as  the  Foard  of  carrying  on  business  without  a  license,  but  all 
such  persons  shall  in  all  other  respects,  except  in  such  cases  and  to  such 
extent  as  the  Board  mav  otherwise  order,  be  subject  t-  the  statutory  pro- 
visions affecting  the  holders  of  licenses,  and  the  occupiers  of  premises 
licensed  for  any  such  business  as  aforesaid,  in  like  manner  as  if  they  were 
the  holders  of  the  appropriate  licenses,  and  to  any  restrictions  imposed  bv 
law  on  persons  carrying  on  any  such  business  as  aforesaid. 

10  The  Board  shall  have  power,  on  any  premises  in  which  business  is 
carried  on  by  them  or  on  their  behalf,  to  provide  or  authorize  the  provision 
of  such  entertainment  or  recreation  for  persons  frequenting  the  premises  as 
the  Board  think  fit,  and  where  such  provision  is  made  or  such  authority  is 
given  no  license  shall  be  necessary,  and  no  restrictions  imposed  by  law  on  the 
provision  of  the  entertainment  or  recreation  in  question  shall  apply,  excei.t 
to  such  extent,  if  anv.  as  the  Board  may  direct. 

11  Arrangements  may  be  made  by  the  Board  with  the  Postmaster  (.eneral 
and  anv  other  person  for  affording  postal  and  banking  facilities  on  or  near 
premises  in  which  business  is  carried  on  by  or  on  behalf  of  the  Board  to 
persons  freiiuenting  such  premises, 

12.  Where,  bv  anv  conditions  or  restrictions  imposed  by  the  Board  on  the 
s-ileT.f  spirits',  the  sale  of  any  spirit  is  prohibited  unless  the  strength  M  the 
spirit  is  reduced  to  a  n.onber  of  degrees  uiider  proof  which  falls  between 
such  maximum  ::r,'l  minimum  limits  as  may  be  specified,  or  where  by  any 
order  of  the  ''  rd  the  sale  of  spirit  so  reduced  is  permitted,  section  six  of 
tlie  '^ale  of  I'ood  and  Drugs  .Xct.  1879.  shall  within  the  area  have  effect,  as 
re'-pects  that  spirit,  as  if  the  maximum  number  of  degrees  under  proof  so 
specified  were  substituted  for  the  number  mentioned  in  that  section. 

13    .\11   oMieations  under   covenant,   contract,   or   ..therwise.   to   which   the 


GREAT    lilUTAI.V 


72, 


holder  of  a  license  or  the  nccupier  nf  hccnsed  premises  is  subject,  and  vvliich 
the  provisions  of  these  regulations  or  any  action  of  the  Board  taken  there- 
under make  It  impossible  for  him  to  fulfil,  or  which  are  inconsistent  with  any 
conditions  or  resfictions  imposed  hy  the  Board,  shall  he  suspended  so  long 
as  such  impossibility  or  such  conditions  or  restrictions  continue,  and  shall 
not  be  binding  during  that  |)eriod. 

14.  Where  by  virtue  of  any  action  taken  by  the  Board  under  tliese  regu- 
lations the  holder  of  any  license  is  temporarily  prevented  from  carrying  on 
his  business  as  the  holder  of  such  license,  the  license  shall  be  suspended,  an<l 
the  holder  thereof  shall  be  entitled  to  such  repayment  or  remission  of  excise 
duty  as  he  would  ha\e  been  entitled  to  had  the  license  been  permanently 
discontinued,  and  at  the  e.xpiration  of  the  period  during  wdiicb  the  disability 
continues  the  license,  if  a  justices'  license,  shall  revive  and  have  effect  as  if 
it  had  been  granted  f(.r  the  then  current  licensing  y.ar.  and  a  person  who 
was  the  holder  of  an  excise  license  wdiich  has  been  su  .pcnded  shall  be  entitled 
to  take  out  an  excise  license  on  payment  of  such  an  amount  in  respect  of 
excise  duty  as  would  have  been  payable  by  him  had  he  commenced  to  carry 
on  business  at  the  expiration  (jf  that  period. 

Provided  that  if  during  the  period  for  which  any  license  is  so  suspended 
a  contingency  occurs  upon  which  a  transfer  .^f  the  license  might  have  been 
granted  but   for  the  suspension,  a  transfer  may  be  granted  either 

(a)  at  the  time  at  which,  and  to  a  person  to  whom,  a  transfer  might 
have  been  granted  had  the  license  not  been  suspended ;  or 

(b)  after  the  expiration  of  the  period  to  any  person  to  whom  a 
transfer  might  have  been  granted  had  the  contingency  occurred  imme- 
diately after  the  expiration  of  the  period. 

Where  a  license  for  the  sale  of  intoxicating  liquor  is  so  suspended,  the 
holder  of  the  license  may,  during  the  period  of  suspension,  without  further 
license  continue  to  carry  on  in  the  premises  in  respect  of  which  the  suspended 
license  was  granted  any  business,  other  than  the  sale  of  intoxicating  liquor, 
which  had  the  suspended  license  not  been  suspended  he  would  have  been 
entitled  to  carry  on  by  virtue  of  that  license,  but  the  premises  shall  be 
deemed  to  be  duly  licensed  for  the  carrying  on  of  such  other  business. 

15.  .\r\  "xcise  license  may.  notwithstanding  anything  in  the  law  relating 
to  licensing,  he  granted  as  respects  any  premises  in  the  area  on  the  authority 
of  a  certificate  from  the  Board,  and  any  excise  license  so  granted  shall  be 
valid  in  all  respects,  and.  subject  to  the  provisions  of  these  regulations,  the 
law  relating  to  the  holiiers  of  justices'  licenses  shall  appiy  to  the  holders 
of  such  certificates  as  if  such  a  certificate  was  a  justices'  license. 

Xo  such  conditions  need  be  attached  to  the  grant  of  any  such  certificate 
as  must  be  attached  to  the  grant  of  a  new  justices'  on-license. 

16.  Any  powers  conferred  on  the  Board  by  these  regulations  may,  if  the 
Board  hy  resolution  so  determine,  he  exercised  on  behalf  of  the  Board  by 
any  persons  whom  the  Board  may  appoint  for  the  purpose 

17  In  addition  to  the  powers  expressly  conferred  on  them  by  these 
regulations,  the  Board   shall  have  such  supplemental   and   incidental  powers 


'I 


74        (-.o\ekn-mi:nt  contuol  ur  the  i.iqi'or  uisiness 

as  may  K-  m-cessarv  for  carrying  into  effect  the  purposes  of  these  rck'iilations. 
IS.'aiiv  inspector  or  other  person  authorized  by  .he  Hn-nl  shall  have 
power  to  enter,  if  need  be  l>y  force,  and  inspect  any  licensed  |.rein'ses  within 
the  area,  ami  anv  club  or  other  iremises  within  the  area  wlu-;  he  has  .^easoii 
to  believe  th^t  intuxicatin«  liquor  is  sold  t^y  re-  i1  or  sup,  bed.  to  demand 
the  production  .if  and  to  inspect  and  take  copies  of  or  extracts  from  any 
bMoks  or  docume..:s  relating  t..  the  business  carried  on  there'n,  and  to  take 
samples  .  f   any   intoxicating  liquor   found   therein. 

IQ.  If  any  person  obstructs  or  impedes  any  inspector  or  other  person 
acting  under  the  instructions  or  authority  of  the  Board,  or  refuses  to  answer 
anv  question  reasonablv  put  to  him  by  any  such  inspector  •  r  person,  or 
makes  or  causes  t...  be  made  any  false  statement  to  any  su.  inspector  or 
person,  or  refuses  to  produce  any  document  in  his  pos'-  >.ii  which  he  is 
required  bv  anv  such  inspector  or  person  to  produce,  he  shall  be  guilty  of  a 
summary  offense  against  the  Defense  of  the  Realm  (Consolidation)  Regula- 
tions. 1914.  . 

20.  If  anv  person  attempts  to  contravene,  or  induces  or  attempts  to  induce 
any  other  person  to  contravene,  any  provision  of  these  regulations  or  any 
order  made  thereunder,  or  any  conditions  or  restrictions  imposed  by  the 
I'.nard.  he  shall  be  guihy  of  a  summary  offense  against  th?  Defense  of  the 
Realm  (Conmlidation)   Regulations,  1914, 

■>!  \  person  guiltv  of  a  sumnary  ofTcnse  against  the  Defense  of  the 
Rea'lm  (Consolidation)  Regulations,  1914,  is  liable  to  be  sentenced  to  im- 
prisonment with  or  without  hard  labor  for  a  term  not  exceeding  six.  months 
o-  to  a  fine  not  exceeding  one  hundred  pounds  or  to  both  such  imprisonment 
and  fine,  and  if  the  court  so  orders,  to  forfeit  the  goods  in  respect  of  which 
the  otTense  is  committed. 

12.  No  person  shall  be  liable  to  any  penalty  under  the  law  relating  to 
licensing  or  the  sale  of  intoxicating  liquor  in  respect  of  any  action  taken 
by  him  if  such  acti.m  is  taken  in  pursuance  of  any  order  made  or  instructions 
given  bv  the  Board. 

2i.  The  lioard  before  acquiring  any  licensed  prcinises  or  club  or  an  in- 
terest therein,  or  takinc'  posse:  ion  of  any  licensed  premises  or  club,  shall 
give  notice  .  1  their  intention  to  the  Commissioners  of  Customs  and  Excise, 
and  wliere  the  IV.ard  carrv  on  ..,-  appoint  or  autho'ize  any  person  to  carry 
en  anv  business  involving  tl-.e  sale  or  supply  of  intoxicating  liquor  they  shall 
furnish  to  the  Commissioners  of  Customs  and  Kxcisc  particulars  as  to  the 
nature  of  the  business  t..  be  carried  on  by  him.  and  as  to  any  person  so  ap- 
p.iinted  or  authori^d.  and  any  other  particulars  required  by  the  Commis- 
sioners. ,  ,,       ,     ■  1 

24.  It  shall  be  the  iluty  of  J.:  police  to  enforce  the  •  Kegul.-itions.  and 
any  orders  of  the  Boaril  made    hercun.ier. 

25.  These  rev.ula-ions  shall  applv  to  Scotland  subject  to  the  following 
modifications: 

References  to  r.al  or  personal  property  shall  be  construed  as  refer- 
ences to  heritable  and  movable  property  respectively ,  "intoxicating  liquor" 
.'lall    mean   "excisable   liquor";    "Ue    simple    in    possessio", '    shall   mean 


I 


C.REAT    BRITAIN 


/  :> 


"estate  of  the  pniprietor  or  lessor";  "iiiortKaKe"  shall  nii-an  "herital.lc 
security";  and  a  relereiue  to  a  justices'  license  shall  he  construed  as  a 
relereiue  to  a  certificate  as  defined  in  Part  \  II  of  the  Licensing  (Scot- 
land) Act.  190J. 

In  any  case  where  under  these  resubtinns  the  Board  acquire  or  dc- 
termnie  to  acquire  compulsorily  any  premises  or  any  interest  therein,  a 
person  transacting  on  the  faith  oi  any  register  of  seines  with  the 
proprietor  or  lessor  of  such  premises  or  with  any  other  person  whose  title 
is  recorded  in  such  register  shall  (notwithstanding  anything  in  these 
regulations  contained)  not  he  affecteil  hy  any  notice  served  by  the  Board 
oi  any  vesting  following  thereon  unless  a  certified  copy  of  such  notice 
has  l)een  recorded  in  the  register  of  inhibitions  prior  to  the  completion 
of  such  transaction. 

For  the  purpose  of  enabling  the  trustees  for  the  Hoard  to  complete 
a  title  if  thought  fit  to  any  heritable  property  or  estate  compuisorily  ac- 
quired by  the  Board  and  vested  in  the  trustees  by  <  irtue  of  these  regu- 
lations, by  expeding  a  notarial  iii'-riiment  or  otherwise,  these  regu- 
lations shall  he  deemed  to  be  and  (without  prejudice  to  any  other  method 
of  completion  of  title')  may  be  used  as  a  general  disposition  or  assigna- 
tion of  such  property  or  estate  in  favor  of  the  trustees. 

26.  In  the  application  of  these  regulations  to  Ireland,  the  expression 
"excise  licens-"  includes  any  liceine  for  the  sale  of  intoxicating  liquor  granted 
by  an  officer  of  excise,  and  the  cx|iresvion  "justices'  license"  includes  any 
certificate  of  a  recorder,  justice,  or  justices  required  for  the  grant  of  an 
excise  license. 

27.  I'or  tiie   purposes  of  these   regulations — 

The  expression  "sale  by  retail'  means  sale  other  than  sale  to  trader 
f  r  the  purposes  of  his  trade. 

The  expression  "supply"  in  relation  to  intoxicating  liquor  means  sup- 
ply ( "herwise  than  by  way  of  sale. 

The  expression  "licensed  premises"  includes  any  premises  or  place 
where  the  sale  of  intoxicating  liquor  is  carrieil  on  under  a  license. 


28.  The  regulations  may  be 
Control)   Regulations,  1915. 


as  the  Defense  of  the   Realm   (Liquor 

.■\l.MKRU      I'lTzRov. 


The  first  report  of  the  Central  Control  Roard  ( Liquor  Traf- 
fic), .hereafter  called  the  Board,  was  issued  October  li,  1915. 
Since  it  had  only  been  created  by  an  Order  in  Council  of  the 
10th  of  June,  this  report  could  only  be  fragmentary  and  its  con- 
clusions tentative.  In  fact,  the  full  personnel  of  the  R(,ard  was 
not  published  in  this  report.  It  \va?  ;o  consist  of  a  chairman  and 
such  persons  as  the  Mini,  ei-     f  .xiunitions  might  from  time  to 


76 


COVEHN.MKNT    (DNTKOl.    OK    Till:    I.KJIOK    lU  sl.NKSS 


time  npi 


xiint.     Lord  I)".\licrnon  was  chairman  ami  Mr.  J.  C.  Ci 


.t. 


<i.r. 


Sykcs  was  Secretary.     The  second  report,  dated  .\iay   1,   l''U), 
givci  tlie  tii'.l  jiersDnnel  at  that  date: 


Co.Nsxn  r  rioN'  or 


I 


■  OAKD 


Lord  D'Abernon.  K.  C.  M.  G.,  Chairman 

Major  the  Hon.  Waldorf  Astor,  .\L  P. 

Mr.  W.  Waters  Butler  (appointed  January,  l'M6) 

Rev.  Henry  Carter  (appointed  January,  1916  i 

Ml.  Neville  Chamberlain   (resigned  February,  l'*16) 

Mr.  K.  Richard  Cross 

Colonel  John  ^L  Denny 

Mr.  John  Hodge.  M.  V. 

Sir  William  H.  Lever,  Bart. 

Sir  George  Newman.  M.  D. 

Mr.  John  Pedder,  C.  B. 

Mr.  R.  R.  Scon,  C.  S.  L 

Mr.   Philip  Snowden,  ^L  P. 

Mr.  W.  Towle 

Mr.  J.  C.  G.  Sykes,  C.  B.,  Secretary. 

ASSKSSOKS    TO    TiiK    r>0.\Rr) 

For  Fngland  and  Wales — Mr.  K.  C.  Sanders,  Clerk  to  the 
Liver])ool  Justices. 

For  Scothmd — Sir  Thomas  Munro,  Clerk  to  the  Lanark 
County  Council. 

The  legislative  steps  toward  an  effectiv.  control  of  the  liriuf)r 
trade  in  war  time  may  be  sunmiarized  as  folUnvs: 

L  An  Order  in  Council  of  .August  12.  1^14,  authorizing  the 
competent  naval  or  military  authority  to  dose  premises  licensed 
for  the  sale  of  licjuor  in  the  neighborhood  of  any  defended 
harbor. 

2.  The  Intoxicating  Liquor  (Temporary  Restriction)  Act, 
August  31,  1914,  authorizing  the  licensing  justices  to  suspeiul 
any  license  when  they  deemed  it  necessary  for  the  maintenance 
of  order. 


CHEAT  uritai.v  77 

3.  The  act  of  Parliament  known  as  tho  extension  of  the  De- 
fense of  the  Realm  Consolidation  Act,  dated  May  19,  1915, 
empowered  the  Cabinet  by  Order  in  Council  to  take  such  meas- 
ures as  seemed  wise. 

4.  An  Order  in  Council,  dated  June  10,  1915,  created  the  Cen- 
tral Control  Board  (Lujuor  Traffic)  to  exercise  control  in  such 
areas  as  it  should  select. 

5.  The  regulations  issued  from  time  to  time  bv  this  Board 
were  the  effective  means  of  control.  From  this  time  on,  the 
matter  was  virtually  in  the  hands  of  the  Board,  though  it  always 
acted  under  the  authority  of  the  Council,  and  in  some  ..ases 
merely  made  recommendations  t^  ihe  Council,  which  th.n  issued 
an  Order  in  Council  giving  effect  .o  the  recommendations. 

By  July  6,  I9LS,  the  Board  had  satisfied  itself  that  action  was 
called  for  in  ten  areas  in  England  aP'.!  Wales.  On  that  date  an 
Order  in  Council  was  issued  defining  these  areas  and  bringing 
them  under  the  regulations  of  the  Board.  These  regulations 
are  known  as  "T  ,iquor  Ci  )ntroI  Regulatic  .ns.">  Two  Scotcii  areas 
were  added  on  July  28,  a  third  on  September  14  and  the  London 
area  on  September  24.  The  f(illowing  is  a  list  of  the  areas  named 
in  the  first  report  of  the  Board  as  having  been  placed  under  its 
regulations: 

Commencement 
•^r-a  Date  of  Order  of  Order 

,        !]»v«"    I5th  July  26th  July 

..outhampton    V.A  "  2d    August 

Harrow-in-Furness  22d  "  'd 

Dartford  District  .' .'     Joth  "  6th        " 

.N(^rtheast  Coast  VKh  "  lOth 

nri.stol  and  .^vonmouth  VHh  "  lOih        " 

Liverpfjol  and  Mersey  District 5th  .August  16th 

Newport     1 

^^-'^'-^  7th        "  I8ih        " 

Harry  J 

Scotland,  West  Central   12th        "  2Jd         " 

Scotland,  East  '"entral  12th        "  'Id         " 

Scotland,  Northern   17th  September  27th  September 

^""''o"  1st    October  Uth  Octol)er 

It  must  be  remembered  that  the  Board  was  expectc'     t  use 
large  discretionary  powers.    In  the  first  place,  it  was  to  regulate 

'  f«  First  Report  of  the  Central  Control  board  (Liquor  Traffic),  London 
( .October  Iz,  ivl5. 


7P,  GOVKKNMl  \r    ((JNlKOl.    OT    THK    LKjfOK    lU'SINKS.S 


*  f  I,   Kr.iu.iutn  In  hour*  ..f  ti*!.' 

2  I'tuhibfUon  uf  "irrannrf 

3  >•■>  '-tMi'  -■l'^ 


^        />i^ — ~*7  _ ,      . 

^{tJ  ^'     •  N.  ^r  8.  I>ilutlon  .*f  •piriu  p«nHn*»-J 

j^"-'  \  X^  y  «   Abo.llu.^  "tllif  b..ii.  Ii.i.lri>v.::,.r 

\f  rj^^CD        't^'.  7,  No  c»i]\M*in^  from  (Ivor  lo  Jiior 


<^    .(A    F\         Jv' 


iur  hi4U>ir  urtlea 


'Aherdeett 


■^ 
^ 


-_  ri^ 


From  tlic  "ItonferV  Toruiitu,  Canada. 


(,KK.\T    IlKIIAIN  /y 

llu'  li<|ii<ir  track'  only  in  siidi  areas  as  seemed  to  need  control  for 
tlie  reasmis  speeitied  in  the  act  of  Parliament  aulliorizinj,'  con- 
trol. In  tin'  Mcond  place,  it  was  to  ai)[)ly  only  sncli  regulations 
in  each  area  as  the  local  conditions  seemed  to  reciuire.  A  differ- 
ent set  of  regulations  could,  if  thought  ilesiral)le,  be  applied  to 
e;icli  area. 

The  orders  issued  were,  however,  witii  the  exception  of  th;it 
for  London,  all  framed  on  the  same  general  plan,  though  not 
in  all  respects  identical.  The  main  jirovisions  were  the  restric- 
tion of  the  hours  of  sale  and  the  elimination  of  treating.  It  was 
tiiought  that  drunkenness  residted  Largely  from  the  cumulative 
effects  of  tlrinking  when  continued  over  long  hours.  When  men 
iiegan  drinking  early  in  the  day  and  c.'Utinned  occasirinalh-  until 
late  at  night  the  physiological  and  nior.d  effects  were  likely  to 
become  intensified  beyond  rea>onai)le  limits,  .\ccordingly  the 
jiiaces  of  sale  were  to  I)c  cli'-ed  except  for  siiort  peririds  in  the 
middle  of  the  day  and  in  the  early  evening.  Treating,  especially 
the  treating  of  soldiers  ;ind  sailors,  though  indulged  in  from  the 
\erv  be>t  of  motives,  was  likely  to  result  in  excessive  drinking. 
W'heii  a  large  number  of  p.itrioiic  citizens  desired  to  show  their 
good  will  by  treating  a  soldier,  it  was  hard  for  him  to  avr.id 
showing  his  appreciation  by  accepting  their  hospitality.  But  the 
good  will  of  those  who  did  the  treating,  and  the  politeness  of  the 
soldier  could  not  prevent  the  physiological  elifects  of  alcohol  from 
showing  themselves. 

The  following  is  a  part  of  the  text  of  the  order: 


(1)  The  sale  or  supply  of  intoxicating  liquor,  whether  for  consumption 
on  or  off  the  premises,  is  ordinarily  restricted  to  two  and  a  half  hours  in 
the  middle  uf  the  day,  and  to  three  (or,  in  some  cases,  two)  hours  in  the 
cveniiiK,  the  sale  of  alcohol  thus  heinf,'  prohibited  before  12  noon  and  through- 
out the  afternoon  between  2:30  and  b  or  6:,10  r.M. 

(2)  In  addition,  the  sale  or  supply  of  spirits  for  consumption  is  prohib- 
ited in  the  evenings  and  on  Saturdays. 

(3)  "Treating"  and  credit  sales  are,  subject  to  certain  minor  exceptions, 
absolutely  prohibited. 

(4)  Clubs,  as  well  as  licensed  premises,  are  made  subject  to  the  restrictions. 
f5)  licensed    premises   are   permitted   to   open    for   the   purpose    of   the 

supply  oi  nonalcoholic  drink  and  of  solid  refreshment  at  an  early  hour  in 


80 


(;o\  EKNMENT    lUNTHOL    OF    THE    LlylOK    lUSlNKSS 


'-i 


llic  morning,  so  as  to  meet  the  interests  of  men  proiCtilinK  to  their  work, 
and  they  are  alloweil  to  rcmam  open  for  this  pvirposi-  in  the  hours  diirniK 
which  they  are  iirohiliitcd  ly  the  Board's  order  from  selling  intoxicatini; 
liijuor. 

(6)   Permission  is  given  to  chliitr  spirits  to  .IS  (legrers  \inder  proof  «.nU, 
as  allowed  tv  the  general  law. 

In  the  case  of  London,  the  li(  Trd,  on  the  urgent  represenfations  of  tlic 
mditary  authorities,  have  issued  an  order  prohihiting  "treating"  and  permit 
ting  the  dilution  of  spirits  to  45  degrees  under  proof  in  the  case  of  gm  and 
to  35  degrees  under  proof  in  the  case  of  other  spirits.  The  question  of  the 
restriction  of  hours,  and  other  matters  usually  dealt  with  by  the  Hoard's 
orders,  are  being  carefully  considered  v.ith  a  view  to  the  special  requirements 
of   London.' 

In  the   sectmd   reijort  of  tho    Roarcl  a  more  detailed   order, 
dated  February  17,  1916,  is  published. 


Hoiks  during  Which  Istoxu  atini;  Liqi'or  May  Be  Sold' 

A.  For  Consumftion  OX  the  Premises 

2.  ( I )  The  hours  during  which  intoxicating  liquor  may  be  sold  or  sup- 
plied in  any  licensed  premises  or  club  for  consumption  on  the  premises 
shall  be  restricted  and  be  as  follows : 

On   Weekdays: 

The  hours  between   12  noon  and  2:30  p  m.,  and  tiet.veen  6  pm.  and 
9  P.M 
On  Sundays: 

The  hours  between  12:30  p.m    and  2:30  p.m.,  and  between  6  p  m.  and 

9  P.M. 

Except  between  the  aforesaid  hours  no  person  shall — 

(a  I   Kither  by  himself  or  by  any  servant  or  agent  sell  or  supply  to 

any  person  in  any  licensed  premises  or  club  any  intoxicating  liquor  to  be 

consumed  on  the  premises;  or 

fb)  O  isume  in  any  such  premises  or  club  any  intoxicating  liquor;  or 
(c^   Permit  any  person  to  consume  in  any  such  premises  or  club  any 

intoxicating  liquor. 

B.  i'nr  Ccnsumf'tion  OFF  the  Premises 

(2)  The  hours  during  which  intoxicating  liquor  may  be  sold  or  supplied 
in   any   licensed    premises    or   club    for   consumption    ofT   the   premises    shall 

'From  the  First  Report  of  the  Central  Control  Board  (Liquor  Traffic). 
London.    October  12.  1915.     Pages  4  and  5. 

-Second  Report  of  the  Central  Control  Board  (Liquor  Traffic),  appointed 
under  the  Defense  of  the  Keahn  (Amendment)  (No.  J>  Act,  1915;  Ist  May, 
1916,  pages  10  el  seg 


OHKAT    HKITAIN' 


81 


(sul.jcct  to  the  a.ldi.mnal  rcstr.ct.ons  as  r.-Kar.ls  spirils)   l,e  rcMrKtcl  an.|  l,e 
as   fdllows: 

t-*'!   ll'i-ikdays: 

The   hours  between   1.'  tmon  aii.l  2  M)  i-.m  ,  an.!  Ntwet-!.  f,  r  m    an<i 

H    p.  M. 

On  Sundays: 

The  hours  between  U' :J0  p  m.  an.l  J  ,W  p.m.,  aii.I  l^-tween  6  pm    and 

8    P.M. 

Except  between  the  aforesaid  hours  no  person  shall— 

(a)  Hither  by  himself  or  by  any  servant  or  aKent  sell  „r  suppK  to 
any  person  in  any  licensed  premises  or  club  for  consumption  oti  the 
premises  or  (except  as  hereinafter  expressly  pnnided)  dispatch  there- 
from any   intoxicatinK   lii|uor;  or 

(b)  Take  from  any  such  premises  or  club  anv  intoxicating  liquor;  or 

(c)  Permit  any  person  to  take  from  any  such  premises  or  club  any 
intoxicating  li(iuor. 

AiJDiTioNAL   Restrictions  as  to  Spirits 

y  In  ad<liti.in  to  the  above  Reneral  rcstriclirns  as  to  hours  durins:  which 

intoxicatinR  !;qiior  may  bo  s, ,r  supplied,  the  sale  and  suppiv  of  spirits  in 

liccnse.l  premises  and  clubs  shall  be  subject  to  the   following  special  restric- 
tions, that  is  to   say  : 

(a)  \o  orders  for  spirits  to  be  consumed  otT  the  premises  shaM  be 
i,'iven  by  or  accepted  from  any  person  actually  present  in  anv  license.l 
premises  or  club  ex>cpt  on  Mondays.  Tues.lays,  Wednes.lavs,  Thursdays 
and  hndays.  and  during  the  hours  between  1.'  noon  and  2  M)  pm 

(b)  Spirits  to  be  consumed  ofT  the  premises  must  not  (except  as 
heremafter  expressly  provided)  be  .lispatched  from  anv  licensed  prem- 
ises or  club,  nor  must  they  be  taken  therefrom  bv  the  person  to  whom 
they  are  sold  or  supplied  or  by  any  person  acting  on  his  l)ehalf  except 
on  the  days  and  during  the  hours  aforesaid. 

(c)  Spirits  to  be  consumed  ofT  the  premises  shall  not  be  sold  or  sup- 
plied in  or  taken  from  any  licensed  premises  or  club  in  any  bottle  or 
other  vessel  not  bearing  a  label  showing  the  name  and  situati.  n  of  the 
premises  or  club,  or  in  any  vessel  of  a  capacitv  less  than  on  •  reputed 
quart,  or  in  any  less  quantity  than  one  reputed  (piart.  or  in  any  open 
vessel. 

(d>  No  spirits  to  be  consumed  off  the  premises  shall  be  sold  or  sup- 
plied in  or  taken  fronv  any  refreshment  room  in  any  railway  station. 

CoNIMTIONS     as    to    niSTKIBlTlON 

4.  \o  person  shall  either  by  himself  or  any  servant  or  agent- 

U)  Sell,  suppiv,  distribute  or  deliver  any  intoxicating  liquor  from  any 
van.    barrow,   basket   or   other   vehicle  or    receptacle    unless   before   the 


(;o\  I  i<\  Mi:\  1    ((iNiKDi,  (Pi     nil.   i.iui  ok    iusim-ss 


Ji.'^ 


lii|uor  i>  ili>iiali  lu'(l  il  lu^  hfcii  onUri-cl  .iiicl  llie  (iiiantity.  i|i-siri|itinii  .mil 
|iruf  llicriiif  idnfilier  with  tlie  ii.imc  ami  aiMrcv^  nf  llif  iicr><)ri  to  whom 
It  IS  to  lif  Mipiilicd  lias  liifii  fiitircil  m  a  dcluery  Imok  or  invoice,  wliuli 
shall  In.'  larrifil  hv  the  person  deliveriiiK  the  liquor,  and  m  a  (lay  hook 
wlmh  shall  he  kept  ..n  the  premises  from  which  the  li()iior  is  ilispatclu-.l 

(h)  Carry  or  coiuey  in  any  \an.  harrow,  hasket  or  other  vehicle  or 
receptacle  whde  iii  iim-  for  the  ilistriluitii-n  or  delivery  of  intoxicatinn 
liipior.  any  such  liipior  not  entered  in  ••iich  ilelivery  hook  or  invoice  and 
iliy   l,o,,k. 

(c)  Uistrihiite  or  ilelucr  any  iiiloxii  atinj:  li<|n"r  at  an>  address  not 
specified  in  mu  h  delivery  hook  or  invoice  anil  day   l««ik. 

(iH  Kefiise  to  allow  any  consiaMe  to  examine  such  van.  harrow, 
basket  or  other  vehicle  or  receptacle  or  siu  li  delivery  hook  or  invoice 

it)  .•Xiithori/e  or  permit  any  person  employed  to  deliver,  distrihute 
or  take  or  solicit  i^rders  for  intoxicating  liquor  to  receive  or  make  any 
payment  in  respect  of  intoxicatini;  liquor,  or.  beinn  a  person  so  em- 
ployed, receive  or  make  any  such  payment  on  behalf  of  any  other  person, 
or.  beinK  so  enRa^ed  on  his  own  behalf,  receive  any  such  payment. 
Provided  that  nothini;  in  ibis  paranrapli  shall  alTcct  the  receipt  of  money 
paid  at  the  licensed  premises. 


HOIR'S    OK    OfK.NIM.     loH    TIIK.     Si   I'Pl.V    ol      I'ooll    .\Mi    N'llS  I  NTO.XU  .\NTS 

,s  N'otwitbstandinK  any  provisions  of  this  Order  or  of  tlie  Law  relaliuR 
to  licensing;  or  the  sale  of  intoxicating  li(iuor: 

(a>  Licensed  premises  ma>  be  opened  for  the  supply  of  food  and 
Monintoxii.itini;  liipior  ;.l  the  hour  ol  .s  :.iO  .in  the  morniiiK  on  all  days, 
and  be  ki-|it  open  for  this  (inrpose  from  that  hour  until  the  eveniiiK 
<lo,ini;  hour  |irescribcd  by  the  general  jirovisions  of  the  Licensing  .-Vets; 
and 

(hi  Refreshment  houses  ma;,  be  kept  open  for  this  purpose  at  anv 
time  during  which  they  may  be  kept  open  under  the  general  provisions 
of  the   --aid   acts. 

.S.WlMi     I'UOVISIONS 

6,  Nothing  in  the  foregoing  [irovisi.ms  of  this  order  shall  !>e  deemed  to 
prohibit   in   cases  where  the   same    is  otherwise   lawful: 

(a)  The  consumption  if  intoxicating  liquor  by  any  person  in  any 
licensed  premises  or  club  where  he  is  residing;  or 

(hi  The  consumption  of  intoxicating  liquor  at  a  meal  by  any  person 
in  any  licensed  premises  or  club  at  any  time  within  half  an  hour  after 
the  conclusion  of  the  afternoon  and  evening  hours  during  which  the 
sale  or  supply  of  intoxicating  liipior  is  permitted  by  this  order;  Provided 
that  the  liquor  was  sold  or  supplied  and  serve  1  <luring  such  hours  at  the 
same  time  as  the  meal  and  for  consumption  at  the  meal;  or 

(c)  The  sale  or  supply  of  spirits  to  any  person  producing  a  certifi- 
c  lie  in  writing  dated  and  signed  by  a  duly  (lualified  medical  |iractitioner 


CKKAI     HKITAIX 


83 


that  tlif  <pirits  ;irf  immcdiatily  rniuired  for  medicinal  purposes  ami 
spcclfviriK  the  c|iiucilily  c.t  vi)irits  rc(|iiirc(l  I'rondcd  that  tlir  i|iiaiuil> 
sold  or  supplml  shall  not  exceed  the  i|iiaiilil>  >pci'itied  in  smli  icrtili- 
tate ;  nr 

(d)  The  dispalili  fnun  licensed  pretTiiscs  fur  delivery  at  a  place  more 
than  five  miles  distant  nf  any  spirits  or  other  intoxicating  li(|iior  in  the 
forenoon  of  any  day  on  winch  the  sale  of  the  same  for  consumption  olf 
the  premises  is  permitted  hy  Article  .'  (.')  and  Article  i  of  tins  order, 
as   the  case   may  he. 

iKKAriM.    I'kdiiiiiitkii 

7.  \o  person  shall  nlher  l.v  himself  or  l>y  any  servant  or  awent  sell  or 
supply  any  intoxicating  lii|Uor  to  anv  person  in  any  licensed  |)remi^es  or  in 
any  club  for  consumption  on  the  premises  unless  the  same  is  ordered  and 
pail!  for  liy  the  person  so  supplied;  nor  :,hall  any  person  order  .i  pa\  f^r 
or  Icml  or  advance  money  to  (lay  for  any  intoxicating  liquor  vvherev\ith  aii> 
oilier  person  has  lieen  or  is  to  he  supplied  for  consumption  on  the  iiremises; 
nor  shall  any  person  consume  in  any  licensed  premises  or  cluli  any  intoxicattm; 
liipior  which  any  other  person  has  ordered  or  paid  for  or  agreed  to  pay  f..r 
or  lent  or  advanced  monev  to  pay   for. 

f'rovided  always  that  if  such  inloxicatinj;  liquor  is  sup|ilied  or  served 
for  Consumption  at  a  meal  supplied  at  the  same  time  and  is  consumed  at 
such  meal  the  prov  i-i.^is  of  this  regulation  shall  not  he  deemcil  to  tiv  con- 
travened if  the  person  who  pavs  f.>r  such  meal  also  pays  for  such  intoxuatini; 
liquor. 

I"or  the  purposes  of  tins  regulation  consumption  on  the  premises  include- 
consumption  of  intoxicating;  liquor  in  or  on  any  highway,  open  jjfound  or 
railway  station  adjoinin^f  or  near  to  the  licensed  premises  or  duh  in  which 
the  liquor  was  sold  or  siippheil;  and  any  jierson  consuming  intoxicatiriK' 
licjuor  in  or  on  any  such  highway,  iqien  ^,'round  or  railway  station  shall  be 
deemed  to  consume  the  liquor  in  such  licensed  premises  or  club  as  the  case 
may   he. 

Ckkiht   Prohibited 

8.  No  person  shall— 

(1)    (a)    Either  by  himself  or  by  any  servant  or  agent  sell  or  supplv 

in  any  licensed  premises  or  club  or  dispatch  therefrom  any  intoxicating 

liquor  to  be  consumed  either  on  or  off  the  premises;   or 

(b)  Consume  any  intoxicatins;  liquor  in  or  take  it  from  such  premises 

or  club;  unless  it  is  paid   for  before  or  at  the  time  when  it   is   supplied 

or  dispatched  or  taken  away. 

Provided  alwpys  that  if  the  liquor  is  sold  for  consumption  at  a  meal 
supplied  at  the  same  time  and  is  consumed  at  such  meal,  this  provision  shall 
not  be  deemed  to  he  contravened  if  the  price  of  the  liijuor  is  paid  together 
with  the  price  of  such  meal  and  before  the  person  partaking  thereof  quits 
the  premises 

(2)  Introduce  or  cause  to  be  introduced  into  the  area  any  into.ticating 
liquor  unless  it  is  paid   for  liefore  it  is  so  intn^duced. 


MICROCOPY    RESOLUTION    TEST    CHART 

ANSI  ond  ISO  TEST  CHART  No    2 


1.0 


I.I 


I- 1^ 
t  m 

>-        140 


II  2.5 
1 2.2 

12.0 
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_^      /1PPLIED   IIVMGE     Inc 

-^  'fii  *H?  -  0300  -  P^of>e 


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84 


GOVEKNMKNT    CONTROL    OK    TIIK    I.IOIOU    'USINKSS 


'4 


9.  \o  person  shall  cither  by  himself  or  hy  any  servant  or  a^ent  in  any 
licensed  premises  or  club  sell  or  supply  to  any  person  as  the  measure  of 
intoxicating  liquor  for  which  he  asks  an  amount  exceeding  that  measure. 

DiLLTlON     OF     S.  IRITS 

10.  The  sale  of  whisky,  brandy  and  rum  reduced  to  a  number  of  dcRrees 
under  proof  which  falls  between  25  and  50,  and  of  gin  reduced  to  a  number 
of  degrees  under  proof  which  falls  between  35  and  50,  is  hereby  permitted, 
and  accordingly,  in  determining  whether  an  offense  has  been  committed  un- 
der the  Sale  of  Food  and  Drugs  Acts  by  selling  to  the  prejudice  of  the 
purchaser  whisky,  brandy,  rum  or  gin  not  adulterated  otherwise  than  by 
the  admixture  of  water  it  shall  be  a  good  .lofense  to  prove  that  such  admix- 
ture has  not  reduced  the  spirit  more  than  50  degrees  under  proof. 

E.XPLAN'ATORY    PhOVISIONS 

11. 

(a)  Nothing  in  this  order  authorizes  any  licensed  premises  to  be  kept 
open  for  the  sale  of  intoxicating  liquor  except  during  the  hours  per- 
mitted under  the  general  provisions  of  the  Licensing  Acts. 

(b)  The  prohibition  under  this  order  of  tlie  sale,  supply  and  con- 
sumption of  intoxicating  liquor  except  during  certain  hours  is  not  sub- 
ject to  the  exceptions  provided  for  in  the  Licensing  Acts  with  respect 
to  bona  fide  travelers  and  the  supply  of  intoxicating  liquor  at  railway 
stations  or  any  other  provisions  in  those  acts  enabling  intoxicating 
liquor  to  be  supplied  during  closing  hours  m  special  cases. 

(c)  The  expression  "licensed  premises"  includes  any  premises  or 
place  where  the  sale  of  intoxicating  liquor  is  carried  on  under  a  license. 

(d)  This  order  does  not  affect  the  sale  or  dispatch  of  intoxicating 
liquor  to  a  trader  for  the  purposes  of  his  trade  or  to  a  registered  club 
for  the  purposes  of  the  club. 

(e)  This  order  does  not  affect  the  sale  or  supply  of  intoxicating 
liquor  to  or  in  any  canteen  where  the  sale  of  intoxicating  liquor  is  car- 
ried on  under  the  authority  of  a  Secretary  of  State  or  of  the  Admiralty. 

Revocation   of   Previois   Orders    for  the   Solthampton   and  the 
Pi*TSMoiTn   .\reas 

12.  This  order  shall  be  substituted  for  the  orders  of  the  Central  Control 
Hoard  (Liquor  Trailic)  made  respectively  on  the  22nd  day  of  July,  1915,  and 
the  Ilth  day  of  Xovember,  1915,  for  the  Southampton  and  the  Portsmouth 
.\reas,  which  iaid  orders  are  hereby  revoked. 

ExuiniTioN  OF  the  Oriier 

1.1  The  secretary  of  every  club  to  which  this  order  applies  and  every 
holilcr  of  a  license  for  the  sale  of  intoxicating  liquor  shall  keep  permanently 
affixed  in  some  conspicuous  place  in  the  club  or  in  each  public  room  in  the 
licensed  premises  a  copy  of  this  order  and  any  notice  required  by  the  Hoard 

to  be  affixed. 


i;uK.M   liiaiAiN' 


85 


COMMF.NC  KMF.N'T    OF    OrPER 

14.  Tliis  onler  shall  come  into  force  on  the  tweiitv-eighth  dav  of  Fehru- 
ary,  191<>. 

The  restriction  of  the  hours  of  sale  and  the  elimination  of 
treating  were  followed  later  hy  the  establishment  of  canteens 
and  also  hy  direct  control  of  drinking  places.  Sections  5,  6  and 
7  of  the  Order  in  Council  creating  the  Hoard  (see  pages  68  to 
"6  of  this  monograph)  specifir-Jly  gave  the  Board  power  to 
maintain  refreshment  rooms  .-uid  places  fur  the  sale  of  both 
food  and  liquor,  and  to  ac(|uire  the  necessary  property  for  the 
carrying  on  of  this  business,  even,  if  necessary,  to  the  exclusion 
of  all  other  persons. 

The  need  for  proper  places  where  workers  "might  obtain 
thoioughly  good  and  cheap  hot  and  cold  dinners  and  other 
properly  prepared  refreshtnents  at  moderate  prices"  soon  thrust 
itself  upon  the  attention  of  the  Hoard.  This  need  was  caused, 
HI  part,  by  the  great  concentration  of  workers  in  certain  areas, 
where  accommodations  had  not  previously  been  provided.  Otlier 
agencies,  however,  had  been  at  work  supplying  the  need.  First, 
there  was  the  canteen  established  by  the  employer  himself,  sec- 
ondly, private  agencies  or  philanthropic  societies  were  active. 
Hut  the  Board  itself  had.  at  the  time  of  the  publication  of  its 
second  report  (May  1,  1916)  provided  two  canteens  in  places 
where  the  circumstances  were  said  to  be  somewliat  exceptional. 
In  addition  it  had  exercised  supervision  over  those  established 
hy  other  agencies  and  in  many  cases  it  has  rendered  fin.mcial 
assistance. 

In  the  third  report  of  the  Board  (published  April  30.  1017) 
announcement  was  made  of  a  progressive  development  of  p,,lie>- 
in  several  particulars.  The  progressive  dilution  of  spirits  was 
carried  much  further  than  had  been  allowed  by  prewar  legisla- 
tion. The  Sale  of  Food  and  Drugs  Acts  of  1875  and  1879, 
which  are  analogous  to  the  Pure  Food  Laws  of  the  Ignited 
States,  provided  that  spirits  other  than  gin  should  not  be  snld 
at  a  Unver  strength  than  25  degrees  under  proof  withom  notice 


86 


t;OVKK\Mi:.\T    CO.NTKOl.    OK    THK    I.llJlOk     Hi  SI.NK.sS 


t-  till'  [uirchaMT,  atul,  in  the  casi'  nf  f;ii).  ma  lower  than  35  de- 
j,'ree~  uiukr  lire  Kit.' 

In  the  I'fders  issued  February  17,  I'JIT)  (see  ahove)  permis- 
sion was  L;iven  to  dilute  to  50  per  cent  under  proof.  Hv  an 
order  issued  Jiuie  6,  l')16,  it  was  ]in>\ided  that  spirits  sliould 
n.it  he  >old  havin);  a  niaxiniuni  stren^'th  of  more  tlian  25  per 
cent  under  proof  and  on  February  1.  I'M",  the  ma.xinium  was 
further  reduced  to  .^0  per  cent  under  proof.  Thus,  instead  of 
e.xercisinj;  its  aiUhority  to  prevent  tlilution  below  a  certain  mini- 
nnnn,  the  Board  was  beginning,'  ti^  compel  dilution. 

Tile  same  chanf,'e  of  policy  took  place  with  respect  to  iieer. 
r.y  an  order  which  came  into  force  on  the  10th  of  Julv,  1916. 
permission  was  given  to  sell  beer  containing  not  more  than  2 
per  cent  of  proof  spirit  during  all  hours  of  the  dav  from  0  ,\.m. 
until  the  evening  closing  hour,  and  not  simply  during  the  hours 
within  whicli  stronger  li(|Uors  were  ]iermitted  to  be  sold. 

Tile  I')oard's  policy  with  respect  to  industrial  canteens  lias 
con^tantly  developed  during  the  war.  It  is  imcossible  to  sav  to 
what  extent  the  reasons  back  of  this  policy  are  sound  or  based 
on  accurate,  scientific  evidence.  The  Board  states:  "'  is  a 
matter  of  coininon  knowledge  and  experience  that  the  absence 
of  proper  facilities  for  obtaining  wholesome  and  sufficient 
nouri.-ihnient  fre(|uently  leads  directly  or  indirectly  to  drinking 
habits  with  all  their  resultant  evils."  If  there  is  anything  which 
a  scientific  student  must  learn  to  distrust,  it  is  the  so-called  foin- 
mon  k:iowIcdgc  and  experience.  It  is  usually  a  euphemism  for 
a  statement  "I  prefer  to  assume  that  thus  and  so  is  true."  There 
is  probably  as  much  scientific  e\  idence  for  the  opinion  that  too 
niucli  good  food  leads  to  drinking  as  for  the  opinion  that  inadc- 
(|uate  fo<id  le;uis  to  drinking,  which  is  tlie  same  as  .saying  that 
there  is  U"  reli.able  evidence  in  favor  of  either  proposition. 

Aside    from   its  bearing  on   the  drink   cpiestion,    there   is   no 

'  Proof  spirit  i=  compo'^cd  of  4Q.28  per  cent  alcohol  and  ,^0.7J  per  cent 
water  (by  ueight).  .'^pint  IS  decrees  under  proof  contains  ",t  per  cent 
proof  spirit  or  .^5.91  per  cent  pure  alcohol.  Spirit  .i,'^  dewrees  under  proof 
contains  .!1.8,S  per  cent  pure  alcoh..l.  .Spirit  .^0  dek'rees  under  proof  contains 
lV4y  per  cent  pure  alcohol.  See  Second  Report  of  the  Central  Control 
Board   (Liquor  Traffic),  page   14. 


C.KKAT    liKII  AIN 


87 


doubt  that  the  hiinirin  body  nuist  be  properly  nourislud  and  that 
Its  healtli  and  working  capacity  depends  somewhat  on  the  (|ues- 
tion  of  nourishment.  This  in  iiself  would  furnish  a  sufficient 
reason  for  the  efforts  of  the  Board  to  improve  the  facilities  for 
feeding  the  working  population,  and  its  bearing  on  the  drink 
question  might  very  properly  serve  as  a  legal  excuse. 

Even  though  the  provisions  made  by  the  Hoard  for  feeding 
the  factory  workers  were  nr)t  physiologically  superior  to  those 
which  were  otherwise  provided,  the  psychology  of  the  situation 
is  a  thing  which  would  have  to  be  considered.  If  it  is  the  general 
opmion  that  existing;  provisions  are  inadequate  and  the  Bor.rd 
could  provide  conditions  which  met  with  general  approval,  the 
psychological  situation  would  be  undcHibtedly  improved  and 
this  would  doubtless  have  some  effect  on  physiology.  The  Board 
states,  Third  Report,  page  10, 

It  must  he  admitted  that  the  circumstances  and  conditions  of  his  hfc, 
both  at  home  an<l  in  the  factory,  have  not  infrequently  coniljined  to  prevent 
him  from  obtaming  such  a  food  supply.  He  has  had  to  depend  upon  food 
brought  with  him  from  home— in  some  cases  to  be  warmed  up  at  the  factory, 
and  in  other  cases  to  be  consumed  cold— or  upon  food,  unsuited  to  his 
needs,  obtained  near  his  place  of  work.  Both  these  methods  are  unsatis- 
factory. 

Doubtless  the  Board  had  some  specific  evidence  to  show  that 
food  brought  from  home  and  warmed  up  in  the  factory  or  in 
other  cases  consumed  cold  was  unsatisfactory.  There  is  noth- 
ing, however,  in  the  mere  statement  of  thj  case  that  sounds 
convincing.  In  general,  there  is  just  as  much  evidence  to  show 
that  food  consumed  when  sitting  at  a  table  is  improper  and 
unsatisfactory  as  there  is  to  show  that  food  carried  in  a  tin 
pail  and  consumed  cold  is  unsuitable  and  unsatisfactory.  These 
<lue.stions  are  rai.sed  at  this  point  not  for  the  purpose  of  clearing 
up  any  technical  problems  in  dietetics,  but  to  show  how  large 
a  part  opinion,  psychology,  or  even  demagogy  must  play  in  the 
speeding  up  of  industry  and  in  getting  work  done  in  war  time. 

Again,   the   Board    found   that   neither   the   public  house   nor 
the  ordinary  restaurant  could  fully  meet  the  demands  of  indus- 


88 


cov  i;k.\  mi;nt  contuol  ok  tiik  liulou   itrsiNicss 


trial  life  uikKt  war  cniulitinn?.  One  can  not  lulp  hcinj,'  su>pi- 
cidiis  that  tlii>  I'lndini;  was  not  based  so  much  on  technical 
(littctic>  as  iin  the  st'iT-T'il  fedinf;  of  the  people  that  if  the 
L^cvcniinciit  was  doinj,'  sonu'thiiif;  for  thcni  in  the  way  of  pro- 
viding; citint;  places,  it  was  more  deserving  of  their  enthusiastic 
sui)(i<>rt  in  industry  than  it  would  ritherwise  be. 

Two  other  agencies,  however,  as  stated  above,  were  already 
at  work  and  proviiling  for  this  need,  but  the  enthusiasm  of 
the  employer  as  well  as  of  the  philanthroiiic  agencies  needed  to 
be  enci'ur.iged.  The  philanlliro[)ic  agencies  sometimes  had 
difficultv  in  raising  the  necessary  funds  by  voluntary  subscrip- 
ti<jn.  The  Board  found  it  advisable  to  help  in  the  financing  of 
these  agencies.  It  therefore  obtained  authority  from  the  Treas- 
ury to  pay  grants  in  aiil  to  approved  voluntary  societies  up  to 
one-half  of  their  cajjital  e.xpenditure  on  canteens  for  munition 
and  trans]iort   workers. 

Even  this  method,  however,  proved  inadequate.  Public  sub- 
scriptions fell  off,  partly,  it  is  to  be  presimied,  because  of  the 
heavy  taxation  and  tlie  large  numner  of  calls  upon  people  for 
philantliropic  contributions.  There  was  also  the  feeling  that 
the  munition  manufacturer,  to  whose  advantage  it  was  to  have 
work  speeded  up  and  carried  on  efYectively,  should  finance  the 
canteens.  At  any  rate,  the  voluntary  system  proved  inadecjuate, 
and  yet  it  seemed  desirable  to  keep  alive  these  philanthropic 
enterprises.  The  Board  reached  the  conclusif)n  that  these  volun- 
tary societies  Cf)uld  best  be  utilized  by  employing  them  to  manage 
canteens,  erected  and  equipped  by  employers. 

The  next  (juestion  was  to  induce  employers  to  undergo  the 
necessary  cost.  Under  the  Mimitions  of  War  Act,  practically 
all  manufacturers  of  munitions  in  the  wide  meaning  of  that 
term  in  modern  warfare,  were  to  receive  only  their  standard 
prewar  profits  plus  one-fifth,  all  excess  profits  above  this  to 
be  paid  into  the  national  Treasury.  With  profits  so  rigidly 
limited,  the  employers  would  naturally  be  somewhat  reluctant 
to  undertake  the  additional  expense  of  providing  canteens.  A 
way  out  of  the  difficulty  was  found  by  allowing  employers  to 


(;hk.\i'  hkiiai.v 


89 


charge  the  cost  of  the  canteen  to  the  running  expenses  of  the 
estahh>hnient.  Since  this  reduced  hy  an  eijual  sum  the  amount 
of  excess  profits  whicii  they  would  have  to  pay  into  the  Treas- 
ury, it  virtually  meant  the  public  financing  of  the  canteens.  The 
Board  has  developed  an  expert  staff  of  insi)ectors  and  advisers 
to  cooperate  with  employers  and  philanthropic  agencies  in  the 
maintenance  of  these  canteens.  At  the  time  of  the  puhlicatic.n 
of  the  third  report,  it  had  under  its  supervision  570  canteens 
in  establishments  employing  a  total  of  800,000  workers.  Most 
of  these  canteens  were  what  are  known  as  "tenii)erance"  or 
"dry"  canteens,  in  which  no  intoxicants  are  supplied.  In  a  few 
cases,  however,  the  Board  have  made  special  orders  providing 
that  no  intoxicating  liquor  shall  be  supplied  except  beer,  and 
limiting  the  amount  to  be  supplied  to  each  person  to  one  pint 
to  be  consumed  with  a  meal.  Certain  canteens  have  also  been 
licensed  for  the  sale  of  beer  containing  less  than  two  per  cent, 
proof  spirit.  The  Board  enumerates  the  following  exceptional 
conditions  as  justifying  the  experiment  of  industrial  canteens: 

(a)  The  concentration  of  munition  work  in  well  defined  areas  resulting 
in  congestion  of  population  and  imposing  upon  tlie  workers  the  necessity  of 
traveling  long  distances  to  their  work ; 

(b)  the  establishment  of  large  and  important  factories  in  isolated  places; 

(c)  the  employment  of  women; 

^  (d)   the  employment  of  men  and  women  at  night.      [Third   Report,   page 

The  establishment  of  canteens  had  very  little  to  do  with 
drink  control  except  indirectly.  In  so  far  as  the  belief  was 
justified  that  proper  food,  served  under  proper  condition,  would 
reduce  the  demand  for  drink,  the  establishment  of  canteens 
might  be  called  a  temperance  measure.  At  most,  hfiwever.  this 
could  have  little  influence  on  the  sale  of  drink  in  the  regular 
public  houses.  The  Board,  therefore,  foimd  it  necessary  in  cer- 
tain areas  to  assume  direct  control  of  the  regular  selling  agencies. 
At  the  time  of  the  Board's  .second  report,  it  bad  already  estab- 
lished direct  control  in  the  area  surrounding  the  Gretna  National 
Explosives  Factory.  But  it  was  found  that  large  numbers  of 
the  men  employed  in  this  factory  were  boused  in   the  city  of 


00 


(;n\  ii;\  MI.N  r    (ONIKiil.    (II'     rill'.    l.lnlOU     I'.l  SI.Nl'.SS 


Carlisle,  ami  i\tn  lht>~~^-  iini  Imusiil  tluTc  were  in  tlu'  Iiahit  of 
rcsiirtiiif,'  In  that  cit\'  (ui  liiili(lay>.  Tlii--  created  a  sitiialinii 
uliicli  ^ci-nud  tn  r(.-(|nire  actinii  (.11  tlie  [lart  nf  the  liuiinl.  Such 
a  vast  iiicrca--c  in  llic  ailnh  male  impulatii  m,  ino^t  ni  which  was 
made  up  nl  liiijhh'  paitl  Udrknuii  rccci\inj,'  unusual  \\af,^s, 
naturally  had  the  elt'eet  of  increasing'  drunkeiincss.  The  iiciard 
stales  that  the  averaf^e  convictions  per  week  in  the  autumn  of 
1''15  \\a>  lise,  lint  that  the\-  had  ri>en  to  an  a\i.ra,L;e  of  4_'  per 
week  in  June.  l''U).  It  \\a>  of  httle  use  .appar'ntly  to  exercise 
>lrict  control  over  li<|uor  sellinj,'  in  the  ( jretna  area  so  lon^  as 
these  conditions  existed   in  the  city  of   C'arlisle. 

Somewhat  drastic  action  was  decided  upon.  The  Pioard  pur- 
chased the  whole  undertakings  (if  the  Carlisle  hreweries,  and 
j^radurilly  ac(|nired  the  licenced  premise-  for  the  sale  of  drink, 
11'*  (if  which  were  in  the  city  of  ('ailisle  and  S2  in  the  surround- 
in>j  districts.  Thus  the  I'loanl  itself  has  definitely  !,'one  into  the 
li(|U(ir  husine---.,  not  only  sellintr.  hut  manufacturinj,'.  llavinjj 
com|)lete  contripl  of  the  hiisiness.  however,  it  is  ahle  to  eliminate 
some  of  the  worst  features  and  to  take  measures  for  the  reduc- 
tion of  excessive  drinkinj,'.  There  is  no  advertising',  no  selling 
of  spirits  for  con>uniption  on  the  premises  to  persons  under  the 
age  of  IcS,  and  heer  is  sold  to  such  persons  only  if  taken  with 
a  meal.  Steps  were  also  taken  to  discourage  the  practice  of 
drinking  heer  and  spirits  mixed.  The  nuniher  of  houses  in  which 
spirits  were  sold  for  consumption  off  the  premises  were  reduced 
from  over  100  to  17.  Naturally  a  good  many  readjustments 
had  to  be  made  and  a  very  effective  system  of  supervisi(in  had 
to  he  organized.  The  sale  of  spirits  has  been  prohibited  and  a 
number  of  drinking  places  ha\  e  been  closed. 


CHAPTER    IV 

What   Was   Done   by  the   Government— The  Conservation 
of  Food  Materials 

The  first  stas;,'S  in  the  ,L;(iV(rnnR-iit  control  ,,f  tlu-  li(|unr  tr;ulc 
\vm'  all  nmmctr,!  with  tho  pn.hk-iii  ,,f  ,lninkciin.ss  ,,r  ni  in- 
fftk-icncv  ami  1^  >>s  of  time  .hn'  t<,  .Irink.     Duriiij,'  thu  first  tun 
years  cf  the  war  this  wa-  tlie  nnly  pha-e  of  ilie  c|uestinn  wiiicli 
the  j;nveriiment    iiad   tlmu.ulit    it   neeessiry   to   consider.      There 
had.  it  is  true,  heeii   some  i)iil)lie  di>cnv>i,  ,ti  ,,f  the  i|Ue-tion  of 
tile    waste  of    food   materials   in    the   m.imifacture   of   alcoholic 
drinks,  Init  the  fiiod  short;i,i,'e  liad  n..t  heconu.  sufficiently  acute 
to  force  this  (|uestion  upon  tl,e  ;ittention  <<{   P.irliament Or  the 
Council.     By  the  end  <,f  the  secoud  year,  however,  this  questi<.n 
could  no  lonjjer  be  ignored.     I,i(|uor  control  lej,dvIation  theretl.re 
entered  upon  a  new   pha.se,     1-rom  this  time  forward  the  (|ues- 
tions  of  drunkenness  and  inefficiency  were  less  prominent,  hotli 
in  popular  di>cn>sion  and  in  K"veriunent  action,  tlian  the  ques- 
tion of  food  conservation.     The  ( ierinan  U-hoats  had  maile  a 
sufficient  impression  on  the  sllippinK^  and  the  danger  of  a  genuine 
food   shortaj^e   throu,i,di    the   cuttin.i,^  off  of    imports   was   i,rreat 
cnou^di  to  compel  attention.     The  waste  of  food  materials  in  the 
manufacture  of  potable  alcohol  w.as  so  jjreat  and  so  apparent 
that  no  amount  of  sophistry  and  claptrap  could  divert  the  public 
mind  from  its  .serious  consideration. 

In  addition  to  the  obvious  necessity  of  conserving  food,  the 
EnKlish  people  had  to  consider  the  state  of  mind  in  Canad.a  and 
the  Ignited  States  where  prohibition  sentiment  is  much  stronj,'Lr 
than  in  lui^dand.  Since  England  had  to  dei)end  lar^elv  up..n 
North  America  for  her  supplies  of  j^rrain.  she  coul.I  not  con- 
sistently ask  the  American  people  for  large  quantities  to  be  u<ed 
for  purposes  which  they  did  not  approve.    The  disloyal  and  nro- 

91 


I 


i.(i\  i;nN  Mi;.\  r  ihntkhi.  oi     imk   i.kjiok    mcsinkss 


licrnian  rKiiKMil>  in  nir  iiopulatinn  \\\rv  n<it  slow  t"  take  .uhaii- 
taf^i'  i>l  tlii>  >itiiatinii  in  (irdcr  tn  create  sititiTiutU  eillur  liostilc 
to  f)r  inditYiTfiit  toward  fiKul  conservation.  'l"o  he  Mirc,  the 
hrewinj,'  interests  were  larj^'ely  in  the  hands  of  (lernians.  Most 
of  llicse.  however,  were  loyal  to  the  United  States  and  had  no 
unpatriotic  motive  for  opposinj^  sliipnients  of  jjrair.  to  onr  allies. 
I'.ven  those  (ierinan-.  who  were  disloyal  could  not  acconi|)Iish 
much  hy  openly  oppo^iuj.;  the  savin).j  of  food,  because  their 
iiKitives  would  have  heen  susjiected.  But  the  same  tliinj^  could 
be  accotiiplished  in  different  ways.  F.veii  reasonably  loval  ]H'o|)le 
whose  interest  in  prohibition  was  stronj,'er  tlian  their  interest  in 
the  successful  issue  of  the  war,  kept  askinj,'  why  we  should 
deprive  ourselves  of  the  food  we  liked  in  order  to  send  it  abroad 
to  be  made  into  intoxicating,'  liciuor.  Even  though  the\  forfjot 
tiiat  we  as  a  country  were  not  yet  out  of  our  ^lass  house  and 
were  tiierefore  not  in  a  position  to  throw  stones,  and  even  tliou},'b 
they  forj^ot  that  wheat  which  we  were  bein^j  asked  to  send  to 
the  Allies  w.is  not  used  in  the  manufacturinjj;  of  li(|U(>r,  still, 
this  kind  of  questioninj,'  had  its  intluence  cm  public  opinion  and 
hindered  the  work  of  our  I'ood  .Administration. 

On  Au^;ust  3,  1<)16,  almost  exactly  two  years  after  war  was 
declared.  Parlian-°nt  passctl  the  first  of  a  scries  of  acts  restrict- 
ing the  production  of  alcoholic  licjuor  in  the  United  Kingdom. 
It  reduced  the  annual  output  of  the  breweries  to  26,000,000 
barrels.  The  annual  production  before  this  had  been  approxi- 
mately .V).000,000  barrels. 

The  following  is  the  text  <if  the  act: 

Re  it  cnacud  by  the  Kinj;'s  Most  E::cellcnt  Majesty,  by  and  with  the 
advice  and  c(.iisem  nf  the  Lnrds  Spiritual  and  Temporal,  and  Commons,  in 
this  present  Parliament  asscmlilcd,  and  hy  the  authority  of  the  same  as 
follows  : 

1.  (\)  A  brewer  shall  not  brew  at  his  brewery  or  breweries  during  the 
first  three-<iuarters  to  which  this  act  applies  more  than  the  aggregate  maxi- 
mum barrelages  for  those  quarters  as  determined  for  the  purposes  of  this 
act,  and  shall  not  brew  at  his  brewery  or  breweries  in  any  subsequent 
(|uartcr  to  which  this  act  applies  more  than  his  maximum  barrelagc  for  the 
quarter  as   determined   for  the  purposes  of  this   act. 

(2)    If  a  brewer  acts  in  contravention  of  this  provision  he  shall  be  liable 


i.HK  \l     UK  I  IAIN 


93 


ir.  respect  ,,f  each  offense  m  an  ev.ise  |,enalt>  ,,|  ,,„r  linn.Ire,!  |„.nti,K  .uu\ 
m  addition,  to  an  excise  penalty  of  iw..  pouiuK  for  everv  lurrel  of  |„.er 
lireweil  liv  him  exeecdiiin  tlie   maximunt  liarrelaxe. 

(.11     lliis  section  sliall  i,..t  apply  t.,  I.rewers  otlier  than  hrewers   for  sale. 

-'.Ill  Ihe  maximuni  harrelaKe  shall  he  delermiiird  hy  the  (  ,.nimissioners 
in  the  case  ,,f  each  hrewery,  and  shall  he.  as  respects  anv  .purter.  the  stamlard 
harrelaKe  as  dehne.l  in  this  section  with  the  a.hlitlon  as  respects  anv  .piarter 
after  the   hrst  (piarter  of  the  surplus  harrelaKe  as  s„  defined. 

(.'I    The  standard  harrelane   for  the  purposes  of  this  section   shall  he- 

(a)  in  the  case  of  a  hrewery  which  was  working  .hiring  the  corre- 
sponding quarter  in  the  year  ending  the  thirty-t'irst  .lav  of  March  nine- 
teen hun  !red  and  sixteen,  the  iiumher  of  harrels  which  appcr  to  the 
Comnii.ssioners  to  have  been  hrewe.l  at  the  hrewery  in  that  , purler;  and 

(b)  in  the  case  of  a  hrewery  which  was  not  working  in  the  o.rrc- 
spondiiiK  iiujrtcr  of  that  year,  the  number  of  barrels  which  appear  to 
the  Commissioners  to  be  reasonable  having.  rcKard  to  the  average  num- 
ber of  barrels  brewed  at  the  brewery  durii.Lf  the  time  the  l.rewerv  has 
lieeii  working;  and 

(c)  in  the  case  of  any  >pecial  hrewery  where  the  Commissioners  ire 
satisfie.l  that,  owinR  to  the  transfer  of  a  brewing  business  or  anv  other 
change  in  the  circumstances  of  the  brewery  takitiR  place  after  the'ihirtv- 
hrst  day  of  March,  nineteen  hundred  and  fifteen,  the  standard  barrel  lye 
as  ascertained  under  the  f.ireKoinsf  provisions  does  not  alTor.l  a  proper 
stan.lar.l  ,,f  comparison  or  affords  no  standard  of  comparison  such 
number  of  barrels  as  the  Commissioners  think  just  bavin,?  reijar.l  |o 
the  special  circumstances  of  the  case,  reduced  in  each  case  bv  1=.  per  cent 

J'rovide.l.  that  if  a  brewer  gives  notice  to  the  Commissioners  before 
the  hrst  day  of  .XuKUsf,  nineteen  hundred  and  sixteen,  that  he  desires 
that  the  foreKoing  provisions  of  this  secti..n  should  he  applied  to  bis 
brewery  with  the  substitution  of  the  year  en.linw  the  thirtieth  d.iy  ,,f 
September,  nineteen  hundred  and  fourteen.  f,.r  the  vear  endins  the  thirf- 
first  day  of  March,  nineteen  hundre.l  an,l  sixteen,  and  of  30  per  cent 
for  15  per  cent,  those  provisi,.ns  shall  be  applied  t..  his  brewery  with 
those  substitutions,  subject  to  the  power  of  his  Majestv  bv  Oder 
in  Council  to  withdraw  this  privilege  as  from  a  subsequent  date  to  be 
fixed  by  the  Order  in  C.>uncil  or  to  substitute  anv  higher  percentages 
pro  rata  if.  at  any  time  after  the  expiration  of  six  m.mths  from  the 
hrst  day  of  .\pril.  nineteen  hundred  and  sixteen,  it  appears  that  the  rate 
of  the  total  output  of  beer  in  the  United  Kingdom  is  not  reduced  to 
below  a  rate  of  26.(X)0.onO  barrels  a  vcar. 


(J)  If  any  licensed  premises  shall,  after  the  thirtv-first  dav  of  March 
nineteen  hundre.l  and  fourteen,  have  been  or  f,e  sol.l.  transferred  mortgaged' 
or  leased  t,.  any  brewer,  the  brewer  shall  be  entitled  thereafter  to  supplv 
to  the  licensed  premises  the  same  quantity  (less  15  per  cent)  of  beer  as  has 
previously  been  supplie.l  by  another  brewer  the  maximum  harrelage  of  thit 
other  brewer  shall  be  reduced  by  the  amount  of  such  snpplv.  and  the  mixi- 


"1 


(,(l\  I  l-\  Ml   N  I 


IN  I  Kill.    Ill       I  II  I       I   h 


iili     l:i  .SIN  I..S.S 


'I' 


niiim  l.jrrtl.iKf  'ii  the  IrcwiT  Im  wlioiii  tin  priiMi-i-  ■.lull  lie  so  •i.ilil,  trans- 
fcrri'il,  nmrln.ini'il.  "f  Ic.isnl,  sIkiII  lir  MMiil.irly  iiu  rr.i»i-i|  Tlic  traiKirr  ii(  a 
tiiiirt^;,t>;i'  mi  am  Im'iisril  llrlml^<■^  sli.ill  I'C  ili'iimd  ti.  lie  a  lr:lll^fl■r  "< 
lufiiMil   pmniscs   willim  this  sjitimi 

I -t  I  I'lir  the  |)iir;Hi'>f5  of  tlii'.  mtIhhi  llic  viirpliis  li.irrrl.im'  vli.iU  Ic.  .i^ 
rc^pfit>  aiiv  iiiiartrr.  the  imtnlirr  (if  aii>  i  nf  liarriN  In  wlmli  ilio  ai;nrc>;atc 
luiinlior  of  liarrcls  lirewed  iluriiiK  tlu-  iircvions  ijiiarlcrs  |m  «1iiiIi  tlu-  act 
apiilics  is  less  than  the  aKKrcKatc  stamlanl  larrelaKe   lor  iIiom-  i|iiarti-ts, 

.V  A  mamif.ioliircr's  license  for  a  tire«-er  for  sale  shall  not  altir  the  ilale 
of  the  passing;  of  this  act  lie  Kranteil  while  this  act  is  in  operation  except 
to  a  person  holihin^  such  a  license  ami  f^r  the  -.une  pnnnses  as  iho-.o  in 
respect  of  which  the  license  is  hehl  or  for  premise,  siihsiitnti  il  for  iliose 
premi,es. 

4.  Where  the  provisions  of  this  act  interfere  with  any  contract  rnaile  liy 
a  lirewer  hefore  the  first  ilay  of  April,  nineteen  Imnilred  anil  sixteen,  to  sell 
or  supply  lieer  or  in  connection  with  the  ilelivery  of  heer,  that  contract  shall 
lie  moililieil  so  as  to  conform  with  the  proviMons  of  this  act  in  siicli  riiannir 
as  may  he  aK'reeil  upon  hetween  the  p.irlies  to  the  contract,  or,  m  ilefanlt 
of  agreement,  ileterinineil  in  Knylanil  li>  arbitration,  in  accorilance  with  the 
Artiitration  Act,  ISM'',  in  .'Scotland  hy  a  single  arbiter  to  he  anpointeil  hy  the 
vheritT,  and  in  Ireland  in  accoril.ince  with  the  Common  Law  Trocediirc 
Amendment  .\ct  (Irelandl.  18.s(),  and  f'T  the  piirpo-,es  of  that  act.  lun 
siihject  to  any  agreement  of  the  parties  to  the  contrary,  this  proMsioii  shall 
h,i\e  elTect  in  like  manner  as  a  snhniission  to  arhitration  hy  consent  anil:  ,■- 
iziiiK  a  reference  to  a  single  arbitrator  and  incorporating  paragraph  (i)  of  the 
scliidule  to  the   .-Xrhitration  Act.   W. 

.s.  ill  .\ny  license  holder,  in  so  far  .i,  he  is  iif  .t  lioinid  liy  any  covenant, 
ak'reeinent.  or  nmlertakiiii,'  to  ,.htain  a  supply  ,if  heir  irom  any  particular 
hresver,  and  who  has,  at  any  time  diiriiit;  the  year  ended  the  thirt^-tirst  day 
of  .\l.irch,  nineteen  hundred  and  sixteen,  hcen  supplied  with  heer  by  any 
brewer  or  brewers,  shall  he  entitled,  on  nivin^  not  less  than  fourteen  days' 
notice  in  writing,  to  obtain  from  such  brewer  or  brewers  particulars  of  the 
number  of  bulk  barrels  of  each  description  of  beer  supplieil  and  also  a  cer- 
tificate or  certiricatcs  stating  the  total  number  of  standard  barrels  re[ire- 
seiited  by  the  beer  supp'ied  ilurinR  each  quarter  of  the  year  ended  the 
thirty-first  day  of  March,  nineteen  hundred  and  sixteen,  or  such  shorter 
period  as  the  supply  has  conlimied. 

(2)  The  license  holder  shall,  alter  forwardin^;  any  such  certificate  to 
the  Commissionc  ,  he  entitled  to  obtain,  during  any  corre.spondiuK  tpiarter 
to  which  this  act  applies,  the  sarie  number  of  standard  barrels  (! educed  by 
l.s  per  ceiiil  from  any  other  brewer  who  may  be  willini;  to  sii|ipl\  him 
therewith,  and  in  every  such  rase  the  maximum  barrela^e  of  the  brewrr 
ceasiiiR  to  supply  the  license  lioldt-r  shall  be  reduced  by  the  amount  stated  in 
the  certificate  (less  l.i  per  cent),  and  that  amount  shall  he  transferred  to  the 
brewer  who  has  undertaken  to  supply ;  Provided  that  where  the  license 
holder  is  himself  a  brf'.",-  for  sale  the  certificate  shall  not  be  used  to  .ibtain 
a  trai'.sfcr  of  barrelapc  to  himself,   and   that   where   a  certificate    forw.irdeil 


(;/<iAr  MKiiAiv 


95 


under  th  ,  ,er„o„  re  .Vo  m  an^   ..u.r.cr  ,„   I,  ,l,r  l,.cnsr  h.l.l.r   ,.  ,up. 

l.i)   III  this  sM,„„  the  expre^mn   -lufiisc  h.l.l        me;..,^       , 
an  exc.se    urnse  authorizi„K  the  ^ale  of  beer  whether  wholesale  ,„ 

i.l.ier   f,r     I,.-   ■„,„■   1„.,„«;   a,„l   wh.Tc  an>    „r.-,n,..s  „„   «|„d,   Urvr   is   ,„M 
.    e  u,ukT  ,„.   ,naMaKrn,e„t   „f  ,he  (Vntral  C„n.r„l   H„ar,l    ,  L.quor   Traffic 
^.e  Central  (on.rnl  „.,ar,l,  an.l  where  ,he  hol.ler  „f  the  hcen.e  ,s  [  LZ; 
ma„a«,„«  ,he  Mcense.l  „ren„se.  „„   iK-half  „f  any  ,„her  Kr.nn   .,r  ."     na 
..any  ,„her  pers„n  wh„  contn.K  the  „r.lern,«  of  l.eer  fo'r  the  pre  n  so 
person  who  so  controls  the  ,.r,lerinR  of  the  heer 

(4)   This  section   shall  apply  to   registered   dnhs  as   it   applies  „,  licensed 

;;::rho,r  •"  ^"""•"" ' --  -—  •-  -'•'  -  - 

(51    Where,  during  ,he  year  en.le.l  the  thirtv-firs,  dav  of  March    nineteen 

mxlred   and   sixteen,   l.er   has   heen    s„„„|„   ■    „    any    l.rewer   n,   a        ,       ^ 

l.e Id  under  the  antlioritv  of  the  Secretary  of  State  or  the  Admiralty    the     .me 

n«hts   a.   arc   conferred    under    „„.    ..,„,„    „„„„    ,    ,,,,„^^   h,   !    ;       a  1  7. 

::";r::;:  z::r '" '"-  '-^  "^  "■'■  ^--->  "^  ^'-  -  Adm,;^;: 

6.  The  Hoard  of  Trade  may,  at   the  reipiest   of  ,|,e   Armv   Council    Kr.iiit 
a  special  certificate  to  any  brewer   in    Irelan.l   authorizing   him   to  brew   1 
n  excess  of  the  limits  presented  by  this  act   if  the  addition  is  re.p,ired     o 
l.e  use  of  mditary  canteens  ,n   Ireland,  and  the  amount  of  beer  which   , la 
rrewer   is  entitlcl   to   brew   shall   thereupon   be   increased   bv   the   Tm ler   o 
barrels  stated  in  the  certificate,  and  this  .c,  shall  have  effect  accorZiu 
/.   In  this  act,  unless  the  context  otherwise  reipiires- 

The  expressions  ■■brewer"  an.l  "brewer  for  sale"  have  the  same  mean- 
K'  as  in  the  Inland  Revenue  Ac.  I8«(..  an.l  include  the  Central  Control 
Hoard   (Upiorrraffic),  and  the  expression  •■beer"  has  the  same  ma 
m^as  in  Part  II  of  the  I-inance  (1909-10)  Act    1910- 

The    expression    "brewery"    means    premises    in    ;espect    of    which    a 
manufacturers  license  to  a  brewer   for  sale  is  in   force' 

The  expression  "barrel"  means  the  standard  barrel  ^ontainiuK  thirty- 
SIX  gallons  of  beer  of  oriK'in.il  gravitv  of  l.O.s.';  degrees  ■ 

Tne  expression   "quarter"   means   the   three   months  'commencing   „n 
.He  firs,  day  of  January,  the  firs,  day  of  April,  the  first  dav  of    hi 
an.l  the  first  day  of  Oc.oher  in  anv  year;  and 

The  expression  "Commissioners"  means  the  Commissioners  „f   Cus- 
toms and  Excise. 


8.  Th 


and 


This  act  may  be  cited  as  the  Output  of  P.eer   (Restriction)   Act    1916 
shall  apply  to  the  quarter  which  commenced  on  the  first  day  of 'April 


April, 


96 


;()Vei<nmi:nt  roNTKOi.  of  thk  i.igroK  nrsiNF.ss 


nint-tcf.i  Iniiulrol  aiul   Mxtecii,  and  t,.  ovory  subsequent  (luarter   which  com- 
inenies  dnriiiy  the-  ccintiniiance  i«t  the  pri-^cnt  war. 

Output    lit    Beer    (Restriction!    .     t.    191(). 
(Jrd  AuKUSt,   1916) 
•\n  act  to  put  tcmporarv  restriction  on  the  Output  of   Beer. 
From  I'uhlic  C.eiicral  Acts,  0  &  7  C.eorge  \.  I'JUx    Chapter  26,  page  80. 

This  act  was  anu'iuled  in  sonic  unimjiortant  details  on  Decem- 
ber 1-8,  lv'16,  l)y  what  is  knt)wn  as  the  Output  of  Beer  (Restric- 
tion) Anundni.  .It  Act,  UUG.  Pubhc  General  Acts  6  and  7 
George  \'.   1<'16,  page  169. 

In  order  to  iiandle  the  food  question  in  a  more  efficient  man- 
ner. Lord  Devonport  was  appointed  Food  Controller  on  Decem- 
ber 9,  1916.  This  was  an  emergency  measure,  apparently 
without  parliamentary  authorization.  On  Decemhet  22,  however. 
an  act  of  Parliament  known  as  the  New  iSlinistries  and  Secreta- 
ries Act,  specifically  authorized  the  appointment  of  a  Minister 
of  Food  to  be  known  as  Food  Controller.  The  following  is  the 
te.xt  <if  that  portion  of  the  act  relating  to  the  office  in  question: 

\n  act  lor  estal)lishin(,'  certain  new  ministries  and  for  the  appointment 
of  additional  secretaries  or  under  secretaries  in  certain  government  depart- 
ments; and  for  purposes  incidental  thereto.     (32d  December,  1916} 

Ministry  of   Food 

3.  l-'of  the  purpose  of  economizing  and  maintaining  tlie  food  supply 
of  the  country  during  the  present  war,  it  shall  lie  lawful  for  his  Majesty 
to  appoint  a  M mister  of  I'ood  under  the  title  of  Food  Controller,  who 
shall  hold  office  during  his  Majesty's  pleasure. 

4.  It  shall  be  the  duty  of  the  Food  Controller  to  regulate  the  supply 
and  consumption  of  food  in  such  maimer  as  he  thinks  best  for  maintaining 
a  proper  supply  of  food,  and  to  take  such  steps  as  he  thinks  best  for  encour- 
aging the  production  of  food,  and  for  those  purposes  he  shall  have  such 
powers  or  duties  of  any  government  department  or  authority,  whether 
conferred  by  statute  or  otherwise,  as  his  Majesty  may.  liy  Order  in  Council, 
transfer  to  him,  or  authorize  him  to  exercise  or  perform  concurrently  with, 
or  in  consultation  with,  the  government  department  or  authority  concerned, 
and  also  s".ch  further  powers  as  may  be  conferred  on  him  by  regulations 
under  the  Defense  of  the  Realm  Consolidation  Act,  1914,  and  regulations 
may  be  made  under  that  act  accordingly.     (Ibid.,  page  220.) 

An  Order  in  Council  of  March  30.  1917,  transferred  to  the 
Food  Controller  the  lowers  which  had  been  conferred  upon  the 


■■■■'■^-'■^^^iryh^r^'^^T-x^^^^l^i^ 


GKEAT    DKITAI.V 


Hoard  of  Trade  l)v  tlic  Output  of  B 
1916. 


cer   (Restriction)   Act  of 


Xnu,  thoref.ire.  etc.,  it  is  hereby  ordered,  as  follows- 
lieJr      S:su;:.::;;'^^  ;j^^'*'  -^  ^^-^--ler  S..u..6  of  ,„e  Output  of 

Food  Controller.  '         ^'    ^''    ''""'>    '^=»"^'"red    to    the 

Ord^r,™!;".''"  ""'  ''^  ""■'  ^^  ""  ^'"^^^  C""'-'"-  ^Transfer  of  Powers) 


Subsequent  restrictions  upon  the  use  of  fn„d  materials  in  the 
manufacture  o     alcohohc  liquors  were   in   the   torn:  of  o  de 
issued  by  the  I-ood  Contn;ller. 

First  came  a  series  of  orders  forbidding  the  making  or  ship- 
I'.ng  ot  malt,  except  under  license  by  the  Food  Controller: 

THE   BREWERS'    (MALT   PURCH.^SES)    ORDER.    1917  = 
Dated    Fehruarv   .!     1917 

1.  iixcept   under    the   authority  of   the    Food   rnnrr,.ii„. 
dealer  in  n,alt  shall  on  or  after  f.e  10th   FebruarrS  Lr^    T     T   "" 

'  See  ^,.;.V.(,.r/  /..«n,„/.  April  7,  1017.  London   pace  Ifl^ 


98 


i;(n  EKNMKNT    CONTKOI.    OF    THK    I.IOIOK    BUSINESS 


?.   Any     orson  acting  in  contravcnticm  of  this  (irilcr  is  Kuilly   of  a  sum- 
mary offei.  c  against  the  Defense  of  the   Realm   Kcgulations. 

6.  This  order  may  be  cited  as  the  Urcwcrs'  (Malt  I'urchascs)  Order,  1917. 

Devonkirt,  I-ood  Controller. 


THE  MALT    (RESTRICTION')    ORDER,   1917 1 
Dated  IVbruary  20,  1917 

In  exercise  of  the  powers  conferred  iiiioii  him  liy  reRulation  Jf  of  the 
Defense  of  the  Realm  Regulations,  and  of  all  other  powers  enabling  him 
in  that  behalf,  the  h'ood  Controller  hereby  orders  as  follows: 

1.  Except  under  the  authority  of  the  l-'ood  Controller  no  person  shall 
manufacture  from  barley  or  any  other  cereals  any  u'alt  suitable  for  use  in 
the  brewing  of  beer. 

1.  This  order  shall  not  apply  to  b.irley  or  other  cereals  steeped  at  the 
date  of  this  order. 

3.  I'or  the  purposes  of  tins  order,  the  expression  "lioer"  shall  include  ale, 
porter,  spruce  beer,  black  beer,  and  any  other  description  of  beer. 

4.  If  .uiy  person  acts  in  contravention  of  this  order  or  aids  or  abets  any 
other  person  in  doing  anything  in  contravention  of  this  order,  that  person 
is  guilty  of  a  summary  offense  against  tlic  Defense  of  the  Realm  Regulations, 
and  if  such  person  is  a  company  every  director  and  ofHcer  of  the  company 
is  also  guilty  of  a  summary  offense  against  those  regulations  unless  he  proves 
that  the  contravention  took  place  withont  his  knowledge  or  consent. 

5.  This  order  may   be  cited  as  the   Malt    I  Restriction)    Order.   1917. 

DtvoNPORT,  food  Controller. 


P.y  the  Malt  (Restriction  on  Shippin";)  Orclcr.  1917.-  dated 
March  Jl,  1917,  made  by  the  I'ood  Controller  under  the  above 
re,i,ndation,  it  is  proviiied  as  fcillows: 

1  Except  under  'he  authority  of  the  Food  Controller,  no  person  shall 
export,  ship,  or  consign  any  malt  (a)  from  Ireland  to  any  destination  in  any 
part  of  Great  Britain,  the  Channel  Islands,  or  the  Isle  of  Man;  or  (b)  from 
any  part  of  Great  Britain  to  any  destination  in  Ireland  the  Channel  Islands, 
or  the  Isle  of  Man. 

1.  If  any  person  acts  in  contravention  of  this  order,  or  aids  or  abets 
anv  other  person  in  doing  anything  in  contravention  of  this  order,  that  per- 
son is  guilty  of  a  summary  offense  against  the  Defense  of  the  Realm  Regu- 
lations, and  if  such  person  is  a  company,  every  director  and  officer  of  the 
company  is  also  guilty  of  a  summary  offense  against  those  regulations,  unless 
he  proves  that  the  contravention  took  place  without  his  knowledge  or  consent. 

The  order  comes  into  force  on  ihe  26th  March,  1917. 

Devoni'ort,  Vood  Controller, 

'  Defense  of  the  Realm  Manual,  Revised  to  May  31,  1917,  page  267. 
-  Ibid.,  page  271. 


^-j   f:^^  -»-■»  * 


'■i<;:Ar  hkitaix 


99 


THE  MALT    (KKSTKICTIOX)    Xo.  2   .)RnFK.   1917. 
Dated  April  12,  1917 

.^a.  ,...aU   ,„e  Pood  ConLl.er  heV^S  o/.:"  r:';:,,::^"^  """'""^  """  ^ 
malt  from  any  cereals  °  ''"  manufacture   any 

RcKulations,  and  if  such  ner,nn  il     "^"'^f*'3•";t  '''e  TVfense  of  the  Realm 

".ose  re.ulat,.,ns  un  e"  s  he"ro  e    t     t  the    '  ^^  '"  ^""'""^^  "''^"■^'^  ^^^'-' 
his  knowledge  or  consent  contraventmn  took  place  without 

.■'.   Ttilc  and  Ci>i>imciiccm,>it  of  OiH -r     ti,-  • 

Malt  (Restriction)  No.  2  Order,  1917  ''"^"  ""''  ^'  '""^  ^'  'he 

nKvo.N-poRT,  food  Controller. 

Almost  simultaneously,  March   '9    1017   r.„. 

»e  o.^„  „,  „„  P. J  Co..,™',,;': Il^r^'roz:::; 

Beer   (Restrict  on)   Act  of   191  fi      Ti,  f       .  ,     ,         ^"^''"^   "* 

The',    ,    ;  r'  "r*  -''  '="•''"''  ■'  '°  •»  -a  »"  ba  is 

I  lie  text  of  the  order  follows:  "'irreis. 

IXTOXICATING  LIQUOR  (OUTPUT  AXD  nHLIVERY)  ORDER    ,917 

^^^;j^'""s):     Now.  therefore,  etc.,  the   F-ood  Controller  hereby  orders  as 
^)STag;'29L  '"""  ''^""^''  '^"•-'^  <o  -May  31.  19,7,  page  273. 


100         GUV1-.U\M!:.\T    fONTKtjL    OF     li!K    I.llOUOK    lU-SlVKSS 


■-i,,      . 


I  — r.KKR 

1.  (1)  A  lirewcr  for  sale  sli.ill  not  l.rew  at  his  brewery  in  any  quarter 
more  tlian  the  niaxinnim  harn-hiKe  for  the  quarter  as  clclcrmined  under  thi. 
order. 

(._')  The  maximum  barrelanc  shall  he  determined  for  tne  purposes  of 
this  order  in  the  same  manner  as  under  the  Output  of  IVer  (Restriction) 
Acts,  1^16,  except  tluit— 

(a)  In  ascertaining;  the  standard  harrchiKe  under  Subsection  2  of  Section 
2  of  the  Output  of  Beer  (Restriction)  Act,  I'^IG,  ()6^  per  cent  s'lall  be  sub- 
stituted as  the  amount  of  reduction  where  15  per  cent  is  under  that  provision 
the  amount  of  reduction  and  7.'  per  cent  shall  be  substituted  as  the  amount 
of  reduction  where  3U  per  cent  is  under  that  provision  the  amount  of  reduc- 
tion ;  and, 

(b)  Ten  million  barrels  shall  be  substituted  for  twenty-six  million  barrels 
as  the  rate  of  the  total  output  of  beer  in  the  United  Kingdom  under  the 
proviso  to  Subsection   (J)  of  Section  2  of  that  act;  and, 

(c)  In  determining  the  maximum  barrelage  for  the  quarter  c-mmencing 
on  the  first  dav  of  April.  1917,  or  any  subsdiuent  quarter,  any  surplus  bar- 
relage  accrued  in  respect  of  any  quarter,  previous  to  that  commencing  on 
the  first  day  of  April,  1917,  shall  not  be  taken  into  account. 

(j)  Where  it  appears  to  the  Commissioners  of  Customs  and  Excise 
(hereinafter  referred  t.-  as  the  Commissioners)  that,  owing  to  the  transfer 
of  licensed  premises  from  one  brewery  to  another  or  for  the  purpose  of 
meeting  any  change  in  the  amount  of  beer  required  to  meet  the  supply  of 
any  localities,  it  is  expedient  to  transfer  barrelage  from  one  brewer  to 
another,  the  Commissioners  may  by  onler  make  the  necessary  transfer,  and 
the  maximum  barrelages  of  the  respective  brewers  shall  be  increased  or 
deceased  accordingly. 

(4)  The  rights  of  brewers  under  Subsection  (3)  of  Section  2  of  the 
Output  of  Iker  (Restriction)  Act,  1916,  shall  be  suspended  while  this  order 

is  in  force. 

(5)  If  the  Food  Controller  at  the  request  of  the  Army  Council  grants 
a  special  certificate  to  any  brewer  authorizing  him  to  brew  beer  in  excess  of 
the  limits  prescribed  by  'his  order,  on  the  gr(,und  that  the  addition  is  required 
for  the  use  of  military  canteens,  the  amount  of  beer  which  that  brewer  is 
entitled  to  brew  shall  thereupon  be  increased  by  the  number  of  barrels  stated 
in  the  certificate;  and  this  order  shall  apply  accordingly. 

2.  (1)  The  same  provision  shall  be  applicable  in  relation  to  the  effect  of 
this  order  on  contracts  as  is  applicable  in  relation  to  the  effect  of  the  Output 
of  Beer  (Kestricti.'u')  Act,  1916,  on  contracts  under  Section  4  of  that  act. 

(2)  License  holders,  and  persons  h;.ving  the  same  rights  as  license  hold- 
ers under  Section  5  of  the  Output  of  Beer  (Restriction)  .V-t,  1916,  as 
amended  by  any  subsequent  act.  shall  have  the  same  rights,  and  brewers 
shall  be  under  the  same  obligations,  in  connection  with  the  output  of  beer 
as  limited  bv  this  order  as  under  the  said  Section  5.  except  that  the  per- 
centage of  reduction  in  the  number  of  standard  barrels  which  a  license 
bolder  is  entitled  to  obtain  under  that  section  and  the  redii  t'.^n   from   the 


tiKEAT    UklTAlN 


101 


a.nou„t  stated  in  the  certificate  for  the  purpose  of  ascertaining  the  re,luct,on 
a,K  .ra„sfer  of  max.mum  barrelage  shall  be  mcrcased  so  as  to  be  Ojt  ^ 
cent  instead  of  15  per  cent.  ^  ^ 

(3)  Any  brewer  who  has  not  given  to  a  license  holder  anv   particulars 
or  certihcate  which  the  license  holder  is  entitled  to  obtain   from  h  m  u n 
Section  5  of  the  Output  of  Beer  (Kes.riction;  Act,  1910.  shall  gneThe  pa 

.culars  or  certificate  to  ine  license  holder  within  fourteen  days  after  a 
request  m  writing  therefor  is  made  by  the  license  holder 

(4)  A  brewer   shall  give  to  a   license   holder  a  copy  of  any   certificate 

ut'tf  nLr'TR  ""''  !T  '""  '"'  '"^  '"''"''  "^  Section  5  of  thOt! 
put  of  Heer  (Restriction)  Act,  1916,  within  fourteen  davs  after  a  request 
n  UTiting  for  the  copy  is  made  to  hin,  by  the  license  holder  showin7"ha 

1  aihh.:  fo'^^'r"?  f'^'-t  ^-"^"  '-'  -  f-  some  other  reasoV, 
a\3ilablc  tor  use  by  the  license  holder. 

recogLe^bvMe"'.  "'  ''"  ."'"""'  '°  "  ^'"'"''  '"''''"  "'^""S^  a  person 
recognized  by  the  brewer  as  his  agent 

certificat^s'ofTe'h'''"  '%"!!''"  "'u''"'  °*'"«^''°"  '°  ^'''  P^--"<="'"^  and 
certificates  of  the  beer  as  if  he  was  the  brewer-  and 

(b)   The  beer  shall  be  deemed  to  be  beer  supplied  by  the  brewer  to  the 
license  holder,  and  not  by  the  brewer  to  the  agent 

o    Expressions  to  which  a  special  meaning  is  attached  by  the  Output  of 
Heer   (Restriction)   Act,  1916,  have   (unless  the  context  oth  rw   e  re^ui  es 
the  same  meaning  when  used  in  this  part  of  the  order.  ^«1"'r"^ 

II— Wine  and  Spirits 
4.  (1)  No  wine  or  spirits  shall  be  delivered  from  ship's  side  or  ware- 

m^ord^  ;rny:'*Srr''"' ''"-' '-  •'°-  -"--'-  o"  '•'e  pa;. 
unde:\.!;^p;:v-io:v'' '°""  °^  ^"  ^"""^''^ '°'  "^^ «'-  »>-«  -  ^-« 

undlr\ha"tru:hori;Vand!"°""'  ""^'  "  ^""""^^'^  '°  ""=  "''^"^'  '°  ''''" 
(c)  Unless  particulars  as  to  the  warehouse  or  place  from  which  the  wine 
or  spirits  are  delivered,  and  of  the  amount  delivered,  and  of  the  dat^  o 
delivery  are  entered  on  the  authority  for  delivery 

(2)  Authorities  for  the  purposes  of  this  provision  shall  be  issued  by  the 
Commissioners  in  such  manner  and   subject  to  such  conditions  as  may  be 
prescribed  by  rules  made   for  the  purpose  by  the  Treasury,  and  the  Com 
missioners  shall  attach  to  any  authority  so  issued   such  conditions  as   thTy 

Led  to  h.  ■;  ^""7         P'"""  '"^'^''^""■°"  °f  the  wine  or  spirits  author- 
i2c<l  to  be  delivered. 

The  rules  made  by  the  Treasury  may  provide  for  the  appointment  of  a 
committee   for  the  purpose  of  advising  and  assisting  the  Commissioners  in 

St'o"  tr^rde?'  ''"'  '"'"  '"'  '''  '""''"'^  "^  "^-  P--^  -"^"  «his 

(3)   .Authority  shall   (except  in  cases  where  special  directions  are  given 

by  the  Commissioners^   be  granted  only  to  persons  to  whom  or  on  whose 


II 


102 


(■.o\i;knmi;n  1    (oxtkoi.  oi-   tiik  i.igi ok  iusinf.ss 


behalf  wine  or  •.|iirii<  \vi  ikluer'd  (luring  tlie  year  l^K),  and  so  that  tlie 
total  amiiiint  (lelufreil  to  that  ]pfr?on  (lumiK  the  >ear  lieKinniiiK  on  the  first 
(lay  of  April  shall  not  eMce.!  the  aTiioimt  ilelivered  t.i  tliat  person  cUirini; 
the  year  I'^IO  rediiced  l.y  50  per  lent. 

(4)  This  provision  shall  not  prevent  the  delivery  of  spirits  in  cases  where 
the  Commissioners  are  satisfied  that  tlie  spirits  are — 

(a)  Spirits  delivered  !■■  i  maiiulacturinn  ehemist,  or  to  a  niamifai.tnrer 
of  perfnnies,   for  use  iii  llieir  maiuifactures :  or, 

(hi    Spirits  delnere'!  lor  M.ientitic  purposes;  or, 

(c)  Spirits  supplied  for  the  purpose  of  makini;  medicines,  to  renisfered 
medical  practitioners,  to  liospitals,  and  to  persons,  firms,  and  bodies  cor- 
porate entitled  to  carry  on  the  husiness  of  a  chemist  and  drun^ist ; 

I'.ul  the  Commissiiiners  may  attach  conditions  to  the  <lelivcry  of  any  spirits 
for  those  purposes  in  order  to  ensure  their  use  for  the  jiurposes  for  which 
they  are  delivered. 

(5j  A  person  shall  not  procure,  or  attempt  to  procure,  the  delivery  of 
wine  or  spirits  in  contravention  of  this  provision,  or  make  any  eiitrv  on  ;m 
autliority  which  is  false  in  any  material  particular,  or  make  any  st.itement 
which  is  false  in  any  material  jiarticular,  for  the  jiurpose  of  ohtainini;  any 
authority  under  this  pn  ■vision. 

l'\ery  person  shall  compl>  with  any  conditions  attached  hy  the  Commis- 
sioners to  an  authority  issued  by  tlu'iu  under  tliis  provision,  or  to  the  deliv- 
ery of  spirits  under  this  provision. 

If  it  is  shown  to  the  Commissioners  that  any  condition  attached  hy  them 
to  the  issue  of  an  authori'.y  under  this  provision  has  not  been  complied  with, 
the  Commissioners  may,  if  they  think  fit,  withdraw  the  authority;  but  the 
power  of  the  Commissioners  to  withdraw  the  ruthority  shall  not  prejudice 
tlie  liability  of  the  holder  of  the  authority  to  any  penalty  to  which  he  may 
be  liable  for  not  complying  with  the  condition 

III — Gt.VER.M. 

?.  Infringements  of  this  order  are  summary  offenses  subject  to  penalties 
under  the  Defense  of  the   Is'calm  Regulations. 

6.  This  order  may  be  i  rJ  as  the  liito.xicating  Li<iuor  (Output  and  De- 
livery )   Order,  1917. 

2'th  March,  1917.  Devonport,  l-ood  ConlroUcr. 

Subsc'ijucnt  orders  iiiiidifii.'d  in  special  ways  the  foregoing 
order,  permitiing  an  increase  in  the  (nitput  of  beer  of  not  more 
than  3.V'!  per  cent  above  the  maxinuini  therein  prescribed.  That 
is  to  say,  instead  of  a  niaxinuini  of  10  million  barrel.s,  a  maximum 
of  13'{(  million  barrels  was  permitted. 

The  Intoxicating  LiqiP 'r  (Output  and  Delivery)  Order  No.  2, 
1917,  dated  7th  July,  1917,  made  by  the  Food  Controller  under 
Regulatiiiiis  Iv  and  Jj  of  the  Defense  of  the  Realm  Regul.'itions 


liKKAT    l!l<n  MX 


103 


pn.vi.'.s  that  .liirinj,'  tlu'  (|nartor  cnmmcncing  1st  J„Iy  1917  •, 
hrcw.r  may  .ncrcas.  his  inaxinnun  harnlaK.  over  iha  autl,.'r- 
izcd  hy  the  (.nlir  ..t   .\hirili  _'5  as  f(.|l,,\v>: 

(a)  l!y  JU  ,,cT  crnt  if  1,.-  Kues  .ucl,  „„„,;,.  .,,„|  ,„„,,,,!,,  ,,„h  ,,,,,  ,^„. 
ditidiis  us  art  hercMi.ifier   meiitiuncl ; 

(I.I  liy  such  further  arrumnt,  ,f  any.  as  ,n  h,s  case  inav  l,e  authorized  hv 
license  of  the  r,,o,|  Controller.     ...  .  ai.  n  ,rizea  by 

lY^-lcl  the  aKureKate  for  the  uhoK^  country  shall  not  e.xcecd  that  pre- 
VK^isly   permitted  hy  more  than  .i.ii,  per  cent. 

The  Into.xicatin-  Li,ju.,r  Hhitput  and  Delivcrv)  Order  X,,  ? 
l''l'.  .lated  15.1,  OctdhtT.  I'»i7.  nia.k-  l,v  the  Fo,„l  Cmtmlkr' 
cnnt.m.al  the  i,n,vi>i,.ns  .,f  Order  .\„.  2  fnr  at.nther  m.arter' 
c.)inmenc,nK  l>t  Octoher.  Or.ler  X„.  5,  dated  J4.h  Dccen.her' 
lJl/,^cont.nue<l  the  increase  fur  the  .|t,arter  he.nnni,,,  Januar.; 

By  the  end  „f  1917  the  worst,  of  the  food  scare  was  over  and 
the  33  ;,  increase  was  cnlinued  from  quarter  to  quarter 

W  hile.  as  snj,-,.s,ed  earlier  in  this  chapter,  h„j,s  are  not  food 
nevertlules.  the  ,t,'rowinjr  ,,f  hops  requires  land  and  lahor  whicli 
m.Kht  otherwise  ^row  food.  Without  aItof,a-ther  destrovin^  th» 
hopgnnvMiK  nithistry.  which  is  an  important  as^^rtcuitural  indus- 
try, especially  m  Kent,  it  was  neverfheless  desirahle  that  hop 
</rowmK  .should  he  reduced.  In  fact,  the  reduction  in  the  hrew- 
ing  ot  heer  .seemed  to  make  it  ahsolutelv  necessary  to  reduce 
the  pro,h.ct.o„  ,,f  l„,ps.  On  ^.ay  19.  1017.  a  Defense  of  the 
Ivealm  Kesulatu,.,  reduce.l  the  acreage  devoted  to  hops  to  50  per 
cent  of  that  of  1914,  as  follows: 

Dated  ^ray  10,  1917 
(1)   Suhject  to  the  provisions  of  this   regulation,  the  acreage  cultivated 
n      X'7  ='"-\''"':^'"«  ■"  ^"«'^"<'  -  ^^■-■-  shall,  before  the  30th  darof 
June,    yi/    be  reduced  to  one-half  of  the  acreage  on  the  holdmg  «h,ch  wa 
so  cultivated  ,n  the   month  of  June.   1914,   and  thereafter,   so   long  as  It 
regulation   remains  in   force,  the  acreage  on  the  holding  so  cultivated  sha 
never  exceed  that  proportion,  and  if  the  occupier  of  any  such   holding   faU 
r'^guul'or^r  ~  '^  ^'>^"  -^  -'••>•  °^  ^  s--^y  offense  ^.l^^ 


page 


Defense   of    the    Realm    Regulations.    Revi.sed    to    September    M.    1917, 


1U4       ii(ivi:k.\Mi:N7  ((iNTKoi.  itv    I  id;   i.iihuk   iusimcss 


Ml 


(  I'mliT  i\it'|iti"nal  circiimst.iine^.  the  I'.ii.ircl  ..i  Aurioiilttiri.'  .mil  1  islifries 
nia>   liv  liicn-f  •-iisi'cnil  llii^  rtK'iI.itioii   uilh  rfK'Til  in  |iar'niil.ir  iiulivnliials.  I 

The  use  (if  f,'raiii,  Mij,';ir  or  nidlasscs  for  tlii.-  ilist.lh.tion  of 
spirit>.  f\c<.]'t  under  licence  liy  tlic  .MiiiistiT  nl  .Muiiitiiir>,  \v;is 
l)r(ihil)itcd  by  ;i  Defense  of  the  Re;ihu  Rejjulation  of  Ma/  10, 
l'»16.' 


.'On.  After  the  28th  day  cf  May.  Wu,  no  person  shall  without  a  permit 
issued  under  tlie  autliority  I'l  the  .\Iiiii.-ter  of  .Muintioiis,  u>e  or  permit  to 
he  used,  any  urain,  either  malted  or  unmalted.  rice,  su^ar.  or  molasses,  or  any 
otlier  material  which  may  for  the  time  being  be  specitied  in  an  order  issued 
by  the  Minister  of  Munitions,  in  or  for  the  manufacture  or  procUiction  of 
whiskey  or  any  other  alcoholic  spirits,  and  if  any  person  acts  in  contravention 
of  this  provision,  or  fails  to  comply  with  any  condition  subject  to  which  a 
permit  under  this  regulation  has  been  granted,  he  shall  be  guilty  of  an 
(■flfense  against  these  regulations;  and  if  such  person  is  a  company,  every 
director,  manager,  and  officer  of  the  company  shall  also  be  guilty  of  an 
offense  against  these  regulations,  unless  he  proves  that  the  contravention 
or  failure  took  place  without  his  knowledge  or  consent. 

Considerable  ([uantities  of  immature  spirits  were,  of  course, 
stored  up  in  warehouses.  It  became  necessary  to  regulate  their 
iale,  tttherwise  there  would  be  no  neces.sary  diminution  in  the 
Consumption  of  spirits  until  these  accumulated  stocks  were  ex- 
hausted. Accordingly,  the  Intoxicating  Lif|uor  (Output  and 
Delivery)  Order,  was  issued  by  the  Food  Controller  on  March 
29,  1917,-  reducing  by  50  per  cent  the  quantity  of  wine  and 
spirits  which  c<iuld  b-  delivered. 

The  Food  Controller,  however,  took  control  of  ihe  sale  of 
spirituous  licjuors  by  forbidding  their  sale  except  under  license 
of  his  office.  This  was  accomplished  early  in  1918  by  two 
orders,  known  as  the  W'liiskoy  (Restriction  on  Sales)  Order, 
1918,  and  the  Rum  and  Gin  (Restriction  on  Sales)  Order, 
dated  January  5,  1918,  and  January  17,  U)18.  respectively.  Since 
all  manufacturing  of  potable  alcohol  had  been  [irohibited  by  a 
Defense  of  the  Realm  Regulation  of  May  10,  \'-)\6.  thcr:;  was 
no  occasion    for   the   Food   Controller   to  exercise  any  control 

'Defense  of  the  Realm  Manual,  Revised  to  May  31,  1917,  page  107. 
-  See  aijti\  page  99. 


(.KKAT    HKITAIN 


105 


cxcq.i  over  It.  s.-ik-.  The  ncciimiilatnl  stacks  manufactured  l.e- 
inrc  May.  VHh.  and  tli.,>c  iniixirtcd  wen-  all  tliat  wire  available 
for  sale. 

The   folli.wiuf,'  is  the  text  of  the  orders: 

THli   WHISKEY    (KKSTKICTinN   o\   SALKS)    f)Rl)[-K.    IQlRi 
Hated  January  5.  1918 

191R       Xn      IJ 

In  exercise  oi  the  powers  conferred  up..n  him  bv  the  Defence  ,.f  the 
Kealm  ReKidatums.  and  of  all  other  powers  enal.li,,^,  h,n,  in  that  '.ehdf  t'.e 
iT.od  Controller  hereh)  orders  as  follows: 

1.  \o  wd,iskcy  shall  he  sold  hy  auction  except  at  an  auction  sale  authon/ed 
to  he  held  by  the  I-ooH  Controller. 

2.  A  person  shall  not,  either  on  his  own  behalf  .r  on  behalf  nf  anv  other 
person — 

(a)  Buy,  sell,  or  deal  in;  or, 

(b)  Offer  or  invite  an  offer  or  propose  to  buv.  sell,  or  deal  in;  or 

(c)  Fmer  into  neRotiations  for  the  sale  or  purchase  of  or  other  .leahuR  in 
any  whiskey  by  way  of  wholesale  sale,  wholesale  purchase,  or  whrlesale 
dealing:  unices— 

(i)  He  is  the  holder  of  an  auth,.rity  granted  bv  the  Food  Contn.ller 
authonzMiR  such  sale,  purchase,  or  dealing;  or. 

(ii)  He  was  immediately  prior  to  the  Mk  September,  1914,  a  person 
holdiuK  a  license  to  deal  in  intoxicating  hV|uor  by  wholesale  taken  out  in 
pursuance  of  the  l-in:'.ncc  ( 1909-10 1   Act.  1910;  or, 

(iiil   He  is  the  manufacturer  of  the  whiskev  in'question 

1  In  this  order  the  expression  "a  wholesale  sale"  shall  mean  a  sale  at 
any  one  time  to  one  person  of  two  gallons  or  more  of  whiskev,  and  the  ex- 
pression wholesale  purchase"  and  "wholesale  dealing"  shall  have  crre- 
sponding  meanings. 

4.  Xothing  in  this  order  shall  prevent  any  person  buying  for  the  purposes 
of  retail   ^ale  "r   f,,^  „„  p,„p,„,,  „f  _^„j.   ^,,^^,,  ,^^   ^^.,^.^,,^ 

H.ance  ,1909-  0)  .Xct,  1910.  applies,  or  a  purchase  by  a  person  who  prove 
that  he  :s  not  buying  for  resale. 

5  Infringements  of  this  order  are  summary  offenses  against  the  Defense 
ot  tl'.e  Kealm  I'legulations. 

,q]g    '^^''  ""''■'■  "'^•'  ^^  "^'"^  ^^  "'^  Whiskey  (Restriction  on  Sales)  Order, 

^y  Order  of  the  Food  Controller. 
L.  F.  WiKTovR.  S.-crctary  In  the  Ministry  of  Food. 

iFrom  Orders  of  the  Food  Controller  under  the  Defense  of  the  Realm 
Regulations,  RcMsed  to  January  i\.  1918.  pages  111-11  J. 


10- 


,(l\  1  K.N  Ml   .N  1      (ll.NlKDl.    Ill       1  HI      LllJlDK     lltMM-.SS 


•«1 


1111.  KLM  AM)  i;iN  I  i<i:srkuri(  i\  on  sai.i-S)  okdii.;.  i'MK' 

|).il<'(l  J.imi.ir>   17.  V)\H 

111  fxfrri";^  of  the  pnwcrs  i"iift'rriMl  ii|iiin  liim  liy  the  Drfcnse  cif  the 
Kculm  kenulatiniiv,  an  1  i>f  all  mlier  jinwi-rs  cnahliiiK  limi  in  lliat  iK-half.  Ilie 
1  MC"I  tiinlriilk-r  liiTfljy  llr(lt•r^  as   IciUuw. 

1  N'l  rum  cir  i;iti  shall  he  sulil  liy  aiutioii  except  at  an  auction  sale 
auth.  iri/cil   !■■  lie   licM   I'V   tin-   li.,,(l  I  ontri  llcr 

J.  A  |icrs(.n  shall  iicii,  eitlier  oil  his  iUMi  hclulf,  nr  mi  helialf  ni  any  utllcr 
person — 

(a)    Iluy.   sell,  nr  ileal  in  ;   cir. 

(Ill    Offer  or  invile  an  Mller  or  pfipose  to  liu.v .  sell,  or  ili-.il  in;  .ir. 

(CI  Knter  uil'i  nruotialioii,  tHr  the  sale  or  |inrcli.ise  of  or  ither  ileahuK  in 
.my  rum  or  ^m  liy  way  of  wholesale  s.jle.  wlioles.ile  purch.ise-,  or  wholesale 
dealiuk'.  unless-- 

III  He  is  the  holder  of  an  authorit.\  ^rantcil  hy  the  hood  Controller 
autlion/m^'  such  sale,  purchase,  I'r  draliUK  .  or. 

(ui  He  was  imnu'cliately  prior  to  the  .llltli  Septeinlier.  l'*!4,  a  person 
holding  a  license  to  deal  in  intoxicating  liipior  hy  wholes, ile  taken  out  in  pur- 
suance of  the  Finance  (1'*(I9-1(1)  Act,  191(1;  or, 

(liii    He  is  the  manufacturer  of  the  rum  or  ^in  in  (|iiestion. 

.V  I'or  the  purposes  of  this  order,  the  expression  "wholesale  sale"  shall 
mean  a  sale  at  any  one  time  to  one  person  of  two  ^;allons  or  more  of  rum 
'■r  L;in,  and  the  expressions  "wholesale  purchase"  and  "wholesale  deahnK" 
.shall  have  corresponding  meanings. 

A.  N'othini;  in  this  order  sh;ill  prevent  any  person  huyinn  for  'he  luirposes 
of  a  retail  sale  or  for  the  purposes  of  any  cluh  to  which  Section  4H  of  the 
1  inaiice  (I'XI'MiM  .\ct.  1910,  applies,  or  a  purchase  hy  a  persor  who  proves 
iliat  he  IS  not  huyinn   for  resale. 

5.  Infringements  of  this  order  are  summ.i  .  offenses  ai^'ainst  the  Defense 
of  the  Realm  Re^;ulations. 

(i  This  order  may  he  cited  as  the  Kum  and  dm  (Restriction  on  .Sales) 
tirder,  1918. 

Hy   Order  of  the    hood   Controller. 
W.   H.    Bkvkkiw.k,  Si-iond  Scirctary  to   the  Ministry  of  I'ood. 

>  O/'.  ii/.,  pages  IIJ-IIJ. 


CHAPTER    V 

Results 

\U-  I.av.  .een  that  tlur.  uer.  two  ,I,\,inct  qucMions  involved 
'"  tlK-  l..|..nr  prnbK,,,  .n  (,rcat  IJn.ain.  nanulv.  the  ,,uc.t.o„  „f 
.in.nk.HMc..  an.l  i.u-manuy  „„  ,1,.  .„,,  ,,,„,,,„,,  „,^,  ,^^^j,,^ 
-      '->  iconscrvatinn  .,„  ,,,  ...Ikt,     Tiu.  .tf,.,,.  ,,<  the  solut.on 

Y-Un  1  |.„anl  (Lu|„.,r   IraffK-,  u„I,  In.rc.uuratic  power.      For 
l.c  ^ohu.on  of  the  secorul  ,„u..t,o„,   ,h.  .,,r,c..  of  l.",,,,,!  Con- 
trolkr  was  created  witli  autocratic  power. 

I"  attenipt.nj;  „,  a,:  -raise  ,I,e  results  of  the  efforts  of  these 
wo  aKenc.c..  t  ure  ,s  httie  that  nee.i.  to  he  said  re,ard,n,  the 
Corts  of  the  .ood  Controih..  To  cut  down  the  product.on 
ot  l-eer  from  36  o  IV,  „„n,o„  harreK  a  vear  cuts  down  in  hke 
pro,K,rt.on  the  n,ater,als  use.l  „,  .ts  product.on.  if  the  hcer  co,,! 
ta.ns  the  same  proportion  of  alcohol.  Jf  i,  Contains  a  s„,aller 
prop<.rt.on.  st.ll  less  starch  and  su.ar  are  rcMuired.  To  prohibit 
altogether  t  e  use  of  grain,  sugar  an.l  molas:  es  for  the  distilla 
t..m  of  iK.taWe  alcohol  is  to  save  outright  all  that  would  other- 
wi.e  l)e  used   for  that  purpf)se. 

The  effect  of  this  legislation  was  that  an  output  of  36.000,000 
•arrels  before  the  war  was  reduced  in  two  stages  to  18.200  000 
t  uxHdd  mean  a  reduction  in  the  use  of  barley  of  286,000  tons, 
36,000  tons  of  sugar,  and  16,500  tons  of  grits.  Lor.l  Devon- 
port  also  pointed  out  that  it  would  set  free  for  the  use  of 
aRr,cultunsts  a  greater  pcTcentage  of  ofYals  than  was  previouslv 
prnduce,!  from  brewers'  grains,  U'hereas  the  hrewers  returned 
-  per  cent  o  the  barley  as  offals,  the  farmer  would  now  have 
40  per  cent  after  the  other  60  had  been  made  into  flour 

Three  weeks  later  it  was  decreed  tl,at  no  new  contracts  must 

1(17 


lOS         OOVFHNMKVT    (ONTHOI.    OK    TIIK    I.IyidR     IllSINKSS 


li  I 


'<  . 


Iif  ni;uli-  f'>r  the  dflivory  nf  malt  to  brcwors  rmr  mw^t  lircwers 
iiiaki-  it  for  tlii-iiiM-lvi's.  At  this  titm-  it  was  slmwii  tliat  prac- 
tically no  spirits  wtrc  iKinj;  (listiilctl  cxcc|)t  for  ixplosivcs.  'i'ln' 
i|iu'ry  as  to  why  tiic  1 40.(XX).0(X)  K-'iHons  then  in  stock  was  not 
drawn  U|)on  iiisttaii  of  iisitik,'  new  iiiattriais  was  rf|)iit'<i  to  in 
tlic  House  by  tile  otTicial  statement  tiiat  it  wouUl  not  pay, 
althou^jli  that  step  would  be  taken  if  found  necessary.  Ten  days 
later  the  niaiuifactiire  of  malt  w;is  entirely  forbidilen  except 
with  the  consent  of  the  I'"ood  Controller. 

DurinR  these  few  weeks  there  hail  been  much  public  discus- 
sion of  the  waste  of  food  stutTs  in  the  manufacture  of  beer, 
and  the  submarine  menace  was  opening  the  eyes  of  the  peojjle 
to  the  seriousness  of  th(  'iorta>;e.  The  >;overnment  tonk  imtite 
of  popular  feeling,'  by  revising  the  regulation  issued  only  a  month 
before,  to  come  into  effect  in  another  month.  The  output  i>i 
beer  was  cut  ilown  to  10.000.000  barrels,  thus  saving  600.000 
tons  of  foodstuffs.  Toward  the  end  of  March,  the  sinkings  of 
merchant  vessels  having  become  alarming,  the  various  restric- 
tions see. Tied  justified.  Some  attempt  was  made,  both  in  F.ngland 
and  IVance,  to  exempt  I-'rench  wines  from  the  limitations,  but 
the  conditions  did  not  admit  of  argument  even  on  belialf  of 
Alliiil  nations. 

As  the  law  nmv  stands,  there  are  367,000  tons  of  barley, 
21,4J0  tons  of  grits,  and  44,700  tons  of  sugar  being  utilized 
for  the  manufacture  of  beer.  Whether  it  is  possible  to  con- 
vince the  public  that  much  of  that  vast  ([uantity  of  food  can 
be  better  directed  depends  to  a  great  extent  on  the  future  record 
of  submarine  sinkings.  The  demand  for  further  reduction,  and 
even  for  prohibition,  is  undoubte^Hy  louder,  altbough  as  vet  not 
one  of  the  p<nverful  London  papers  has  advocated  the  latter. 
It  is  a  peculiarity  of  the  standing  of  the  English  press  that 
no  such  startling  change  could  be  efTected  without  newspaper 
support. 

The  chief  difficulty  is  that  of  appraising  the  results  of  the 
liquor  regulations  upon  drunkenness  and  the  general  efficiency 
of  the  nation.     This  problem  divides  itself  into  two  parts;  first, 


I.KKAl     IIUirAIN 


109 


"h-  .UnuKoKic  roults  ami  sa„„.|.  ,h,  phyMoloRical  rcMilts     Of 
tiKsv  tVN...  tlic  (ir>t  is  ni..st  (liir.itilt  f.  niraMirc 

liy  tl.c  dcMKU'OKic  results  arc  meant  the  effects  upon  the  Invalty 
an.l   the  n.nrale  of  ,1,.  ,,.„,,,e.      U  is  ,,uite  cnceivahle   tliat  a 
measure  wh.el,.  from  a  purely  physiological  stan.I,«„nt.  that  is 
from    the    stamljH.int    of    physical    health,    nu.scular    strength' 
"■••mual  sk.ll.  or  mental  alertness,  would  work  well  in  everv  re- 
spect. un^Ut  nevertheless  prove  disastrous  if  it  provoked  re'sent- 
•nnn  or  disloyalty,  resultm^  in  strikes,  rio.s,  „.  ,,,.„  an  unwill- 
'MKUos   to  support   l.y   votes  the  administration   in  a   vigorous 
prosecution  of  the  war.     To  secure  the  vigorous  M,pp,rt  of  the 
Kast  mtelh^ent  a.ul  ti.c  least  loyal  part  of  anv  p.pulation  it  may 
he  necessary  to  permit  a  Certain  amount  of  animal  indulgence 
even   though   u  can  he  .lemonstra-.d  that    it   is   physiolo.ncally 
unnecessary  or  even  injurious.     The  lower  the  state'  of  civiliza 
f  <>"  .n  any  co.uury,  the  more  he.avily  does  this  factor  c.^unt      A 
purely  md.tant  civilization,  such  as  that  of  Ger.nany.  Austria 
and  Turkey,  makes  systematic  use  of  various  forms  of  anitml 
mdul.^ence  to  provide  inducements  to  military  life  and  discipline 
Sexual   and   alcoholic   excitation   are   two    forms  of  animal 
.ndul^rence  most  economically  and  abundantly  provided  for  by 

iriri'h'T  T'T  ;'*-■"  '"^  "'^''-'  ^'--^i'-''  "Kencies  for  hold^ 
ng  the  loyalty  and  obedience  of  soldiers  who  have  no  ideals 
to  fight  for.  Rut  even  in  the  highest  civilizations  there  are 
always  elements  in  the  population,  smaller  or  larger  according 
to  circumstances,  who  are  unmove<l  by  ideals  and  can  only  be 
move,  by  an  appeal  to  their  animal  natures.  This  is  always  an 
element  which  may  give  trouble  in  a  time  of  national  crisis 
Much  as  a  statesman  may  dislike  to  do  so,  he  may  be  compelled 
to  placate  this  element.  .  ' 

When  the  question  of  liquor  control  first  came  up  in  England 
fears  were  expressed  as  to  its  eflfect  upon  various  element^ 
of  the  population,  particularly  the  unskilled  wage  workers 
Squeam.shncss  need  not  deter  us  from  remarking  that  on  the 
average  unskilled  workers  are  les.  intelligent  than  skilled  work- 
ers, and  that  the  unskilled  workers  therefore  constitute  the  least 


110        (KIS  KUNMENT    lOM  Kill.    Ol-     TIIK    l-iylUK    BISINESS 

intclliKent  part  of  the  ptipulatinn  and  the  part  least  influenced 
by  ideals  anil  most  influenced  by  sensuous  appeals.  The  oppo- 
nents (jf  lit|uor  control  were  not  squeamish  about  cautioning 
the  public  on  tlii>  ])oint,  or  even  threatening  that  strikes  and 
riots'  would  result  from  a  reduction  of  the  beer  allowance. 

The  Limdon  Times  of  April  2,  1915.  quoted  from  a  circular 
said  to  have  been  issued  by  the  Allied  Brewery  Traders'  Asso- 
ciation to  the  elTect  that; 

If  the  workers  arc  deprived  of  what  is  actually  to  them' a  necessary  part 
of  their  daily  food,  are  we  not  likely  to  be  faced  with  dangers  enormously 
greater  than  at  present'  Is  it  not  merely  a  question  for  the  government 
to  devise  means  of  bringing  home  to  tlie  workers  engaged  in  the  mann- 
facture  of  the  munitions  of  war  their  responsibility  to  the  nation  and  their 
coworkers  in  tlie  trenches? 


Tn  the  New  York  Tiiiws  for  November  22,  1915,  is  an  article 
statins,'  that  five  lumdred  delegates  to  a  conference  of  London 
trade  unic^nists  liad  just  passed  a  resolution  pledging  themselves 
to  resist  to  tlie  utmost,  "by  open  revolt  if  necessary."  the  regula- 
tions lessening  tlie  Imurs  during  which  liquor  might  be  sold,  to 
five  hours  a  day,  whicli  were  to  go  into  effect  November  29. 
The  delegates  represented  the  printing  trades,  postmen,  railway 
and  vehicle  workers.  ninUk-rs.  laborers  and  the  workingmen's 
clubs.  Tlie  new  regulations  were  described  as  an  insinuation 
that  workingnien  were  addicted  to  exc-ssive  drinking,  which 
arose  from  a  few  isolated  cases.  The  resolutions  said  the  regu- 
lations were  a  direct  incitement  to  workers  to  "lay  down  their 
tools." 

In  the  issue  for  Nr,venilier  25,  the  New  York  Times  contains 
an  article  wliicli  comments  further  on  the  attitude  of  the  London 
mule  unionist,.  h  says  that  their  cry  is,  ".\o  beer  before 
dinner,  no  work  before  dinner,"  and  that  protest  meetings  were 
being  held  to  decide  how  to  defeat  the  regulations  wliirli  \voiild 
go  into  effect  the  next  .Monday.  It  also  says  that  tli  •  trades 
union   executives   have   been    called    into   a   conference   to    jicar 


'  Cf    Chapter  11,   pa: 


(j1. 


GREAT    BRITAIN 


111 


Premier  A«(|iiitli,  Mr.  McKcnnn  and  Walter  Runciman,  Presi- 
(knt  of  the  Board  of  Trade,  discuss  national  finances  and  to 
eonsider  the  financial  position  of  the  nation  in  relation  to  organ- 
ized labor,  the  date  set  for  the  conference  being  December  1. 

These  and  other  similar  considerations  were  not  without  their 
effect  upon  the  government.  Neither  the  Central  Control  Board 
nor  tlie  Food  Controller  was  willing  to  deal  vigorously  with 
the  question.  Restricti'  i  of  the  hours  during  which  intoxicat- 
ing liquors  might  be  '.)ld,  and  reduction  in  the  use  of  food 
materials  in  the  manufacture  of  alcohol  were  both  entered  upon 
gradually  and  apologetically,  the  effort  being  always  to  go  as 
far  as  it  was  felt  to  be  safe  to  go  in.the  reduction  of  drunkenness 
and  the  avoidance  of  waste.  Rut  for  tlie  fear  of  bad  effects 
upon  public  opinion,  it  is  difficult  to  see  what  reasons  could 
exist  for  allowing  any  drunkenness  or  any  destruction  of  food- 
stuffs in  a  time  like  that. 

That  euphonious  phrase,  "difficulty  of  enforcement,"  is  made 
to  cover  a  multitude  of  shortcomings.  When  one  asks  oneself 
why  it  is  difficult  to  enforce  any  law,  one  comes  to  the  bald 
fact  tliat  it  is  because  some  people  arc  unwilling  to  obev  tlie 
law  and  will  resist  it.  To  resist  a  law  which,  in  time  of  national 
crisis,  is  deemed  by  those  responsible  for  the  saving  of  the  nation 
to  be  vital  to  the  best  interests  of  the  ccnmtry  is  to  be  disloyal. 
To  fear  to  pass  such  a  law  because  of  the  difficulty  of  enforcing 
it  is  to  fear  disloyalty. 

They  who  were  charged  with  tlie  task  of  reducing  drunken- 
ness and  conserving  food  were  therefore  in  .  position  of  great 
difiiculty.  They  are  not  to  be  blameci  tor  timidity.  Thev  were 
simply  facing  facts  and  dealing  with  difficult  problems.  Manag- 
ing a  great  war  is  as  much  a  demagogic  as  it  is  a  military  or 
an  economic  problem.  A  nation-  needs  wet-nurses  as  much  as 
it  needs  economists  or  generals.  The  Central  Control  Board, 
and,  to  a  certain  extent,  the  Food  Controller,  were  charged  with 
the  highly  important,  but  not  very  welcome,  task  of  weaning 
the  drinking  portions  of  the  population  from  alcoholic  drink  as 
fast  as  they  would  consent  to  be  weaned. 


112 


(",0\'EKNMF.NT    CONTROL    OF    THE    I.inl'OK    lUSINKSS 


*J1 


*       « 


How  far  the  fears  as  to  the  li>\alty  of  the  people  were  well 
grounded  is  ilifticult  to  fiml  out.  In  the  first  place,  the  Central 
Control  Board  and  the  Food  Controller  were  careful  not  to 
restrict  drunkenness  too  closely,  or  to  save  too  much  food.  Tlie 
pe(  pie  were  not  put  to  a  very  severe  test  to  see  whether  they 
would  resist  being  deprived  of  the  privilege  of  getting  drunk 
or  of  wasting  food  or  not.  In  the  second  place,  such  expre.-.- 
sions  of  opinion  as  one  can  gather  are  somewhat  contradictory. 
Many  groups  of  laborers,  as  well  as  religious  and  other  bodies, 
came  out  wholeheartedly  in  support  of  all  measures  of  liciuor 
control  and  food  conservation.  Other  groups,  both  secular  and 
clerical,  opposed  them.  In  some  cases  there  were  veiled  threa*s, 
but  it  is  ditTicult  to  tell  just  how  much  was  meant. 

Probably  the  best  evidence  to  be  gathered  was  that  obtained 
'  v  the  Commission  of  Inquiry  into  Industrial  Unrest.  In  most 
■ections  of  t!e  country,  the  commissioners  found  tliat  li(juor 
Control  h.ul  little  or  nothing  to  do  with  unrest.  In  the  Soutli- 
western  Area  and  in  Scotland,  particularly,  they  found  no  com- 
plaint regarding  liquor  control.  In  tlie  West  Midlands  Area 
and  the  X(jrtheastern  A  ea,  they  founil  strong  objections.  In 
the  London  and  Southeastern  Area  and  in  the  Northwestern 
Area,  they  found  objections,  but  did  not  consider  them  serious. 

The  fol'owing  cjuotations  from  the  Report  of  the  Commission 
of  Inquiry  into  Industrial  Unrest  for  the  different  areas  show 
the  results  of  the  investigation: 


Report  of  tlie  Commissioners  for  the  Southwestern  Area,  page  3.    July  12, 
1917. 

The  limiting  of  the  hours  (luring  which  licensed  premises  may  be  opened 

for  the  sale  of  intoxicating  liquor  is  no  cause  of  unrest.     There  was  some 

complaint,   but  not  much,  as   to  the   price   and   scarcity   of   beer  in   certain 
localities. 


Report  of  the  Commissioners  for  Scotland,  page  12.    July  10,  1917, 

It  is  a  somewhat  remarkable  fact  worth  noting  that  in  the  whole  course 
of  the  proceedings  no  complaint  has  been  made  from  any  quarter  of  the 
liquor  restrictions  being  a  cause  of  industrial  unrest.  No  reference  at  all 
has  been  made  to  that  subject. 


GREAT    BRITAIX 


113 


Report  of  the  Commissioners   for  the  West   Midiamls  Area,  page  9.     July 

The  commission  were  frankly  amazed  at  the  strength  of  the  objections 
to  the  hqnor  restrictions.  These  came  not  only  from  men  in  the  habit  of 
.Irn.kuiK  beer,  but  from  those  %vho  were  lifelonR  teetotalers  and  yet  recog- 
nized the  need  of  beer  to  those  working  on  certain  occupations.  The  question 
IS  threefold-one  of  hours,  price,  and  scarcity.  Of  these,  the  last  is  by  far 
the  most  galhng.  The  limitation  of  hours,  though  unpopular,  has  been  ac- 
cepted as  a  war  necessity.  The  increase  of  price  is  resented  chiefly  because 
It  IS  felt  that  brewers  are  making  an  undue  profit,  but  the  real  grievance 
IS  the  difliculty  of  obtaining  the  article.  It  must  be  remembered  that  we  are 
dealmg  with  men  who  all  their  lives  ha%e  been  accustomed  to  drink  beer  as 
when  they  want  it.  We  hold  no  brief  cither  for  or  against  beer  drinking,  but 
we  are  convinced  that  that  is  a  question  which  men  must  settle  for  them- 
selves, and  that  it  must  be  recognized  that  beer  is  more  than  a  drink  With- 
out going  into  the  thorny  question  of  whether  it  is  a  food,  it  certainly  is  a 
social  habit  or  a  custom  of  life,  as  two  witnesses  expressed  it  We  recom- 
mend to  the  government  that  the  supply  should  be  largely  increased  We 
recognize  that  this  may  entail  some  weakening  of  the  article,  but  we  wish 
to  impress  upon  the  government  that  besides  supplying  beer  thev  mu.t  sup- 
ply the  sort  that  men  want,  and  that  quantity  alone  will  not  meet  the  case 
.1  allotting  the  new  supply,  special  regard  should  be  had  to  areas  which  show 
largely  increased  population. 

Report   of   the   Commissioners   for   the   Northeastern   Area,   page   3.     July 

As  the  result  of  their  investigations  the  commissioners  are  able  to  state 
that  the  hquor  restrictions  have  not  generally  led  to  the  creation  of  indus- 
trial unrest.  There  are  two  aspects  of  this  question,  m;.— (a)  the  efTect  of 
the  Liquor  Control  Board's  restrictions  regarding  the  hours  during  which 
intoxicating  liquor  can  be  supplied,  and  (b)  the  effect  of  the  shortage  of 
beer  in  consequence  of  the  limited  quantity  which  may  be  brewed  As 
regards  the  first  aspect  of  the  question  there  is  a  general  consensus  of 
opinion  that  the  Board's  regulations  have  done  good.  It  was  however 
urged  that  the  order  which  fixes  the  evening  closing  hour  for  licensed  prem- 
ises in  the  Northeast  Coast  Area  at  9  o'clock  called  for  modification.  It 
was  alleged  that  the  usual  hour  for  men  working  overtime  to  knock  off  work 
was  9  o  clock,  and  that  they  ceased  work  before  that  hour  in  order  to  obtain 
refreshment  before  going  home,  or  even  refused  to  work  overtime  at  all-in 
one  instance  it  was  averred  that  300  men  had  declined  to  work  any  over- 
time-with  the  result  in  either  case  of  a  serious  reduction  in  output.  It  was 
suggested  to  the  commissioners  that  the  Liquor  Control  Board  should  alter 
their  order  for  the  Northeast  Coast,  so  as  to  bring  it  into  line  with  the  other 
parts  of  England  in  which  the  evening  opening  hours  are  generally  from 
fcJO  p.  M.  to  9.30  p.  M.  Certain  employers,  however,  thought  that  this  would 
be  a  mistake,  and  that  the  better  plan  would  be  to  allow  the  men  working 


114      (;o\f.k.\.mi:n T  contkol  t)i-    ihk  i.igi  (m<   iusinkss 


li;!'.: 


\ 


nvertimc  td  Kft  a«ay  at  8..W  p,  M.  nr  8.45.  so  as  to  Rft  rofreslimoiit  liefore 
the  closinK  hour.  The  attention  of  the  Central  Control  Hoard  has  heen 
.ailed  to  this  matter,  and  their  local  inspector  has  been  prosecuting  inquiries 
on  the  snhjcct.  The  second  aspect  of  the  iiuestion,  i  ir..  shortage  of  supplies 
of  beer  combined  with  the  present  exorbitant  prices,  has  led  to  rather  more 
resentment.  Rightly  or  wrongly,  the  workers  are  convinced  that  beer  is  an 
indispensable  beverage  for  incn  engaged  in  the  so-called  "hot"  or  "heavy" 
trades.  If  it  were  demonstrated  that  a  reduction  of  brewing  was  necessary 
in  the  interests  of  food  conser\ation,  there  is  no  reason  to  doubt  that  all 
classes  would  loyally  acipiiesce  in  whatever  diminution  was  deemed  essential, 
hut  the  belief  is  prevalent  that  certain  parties  are  endeavoring  to  use  the 
national  exigencies  as  an  excuse  for  forcing  on  prohibition,  and  to  this  the 
great  body  of  workers  are  bitterly  opposed.  There  was  no  evidence  whatevc"- 
that  excessive  drinking  existed,  and  the  workers'  representatives  made  it 
clear  that  thcv  had  no  sympathy  with  men  who  drank  to  excess.  It  is  the 
view  of  the  ccnunissioners  that  unless  the  national  demands  for  food  require 
it,  no  further  curtailment  of  the  supply  of  beer  in  munition  areas  should 
take  place,  and  that  if  it  were  possible  to  give  a  reasonable  supply  of  beer 
to  the  munition  areas  at  more  moderate  prices,  this  would  in  no  degree 
impair  the  efficiency  of  the  workers,  and  would  have  a  good  etTect.  as  indi- 
catintr  sympathy  with  the  le^;itimate  desire  of  the  workers  for  reasonable 
refreshment  at  a  price  within  their  means. 

Report  of  the  Commissioners  for  the  London  and  Southeastern  .\rea.  page  4 
July  12,  1917. 

Th.rc  is  general  recognition  that  the  restriction  on  the  sale  >f  beer  and 
tlic  increase  in  the  price  of  it  has  produced  hardship,  ill  feeling,  and  irrita- 
tion among  the  large  induirial  population  accustomed  to  take  beer  at  their 
principal  meals.  Kvcn  a  tet  totaler  objected  on  behalf  of  his  union  to  the 
bad  etifect  the  restrictions  liad  on  men  against  whom  no  reflection  of  intem- 
perance criuld  be  suggested. 

In  trades  where  heavy  labor  and  beat  rapidly  exhaust  the  moisture  of 
the  body  the  withholding  of  beer  residts  not  oidy  in  a  sense  of  hardship 
but  also  in  bad  effects  upon  health. 

The  institution  of  canteens  lias  not  bad  the  effect  of  reducing  the  feeling 
of  irrita  m  in  regard  to  cost  of  food,  and  the  inaliility  to  procure  suitable 
foods.  In  many  cases  the  food  provided  at  the  canteens  has  not  been  satis- 
factory, and  the  sameness  of  the  food  has  ■  litated  against  the  success  of 
the  movm-.-nt.  No  adequate  arrangement  ha-  been  made  to  meet  the  rea- 
sonable requirements  of  workers  in  the  matter  of  refreshtnent,  a  difficultv 
which  is  in  great  part  due  to  the  large  influx  of  outside  labor.  In  the 
large  munition  areas  difficulties  have  been  experienced  owing  to  the  limita- 
tion of  hours  during  which  litjuor  traffic  is  permitted,  particularly  in  the 
case  of  overtime  and  night  work.  There  appears  to  be  inequality  amounting 
to  absurditv  in  the  distribution  of  supplies,  en.  in  W'nnlwich,  a  place  to 
which  there  is  an  enoriniius  daily  immigration,  public  houses  are  frequently 
closed   for  d;ivs  together  on  account  of  want  of  supplies. 


GREAT    BRITAIN 


115 


PaKC  8 

Some  relaxations  of  the  existing  restrictions  on  the  u  e  of  beer  miRht, 
we  think,  be  made  with  advantage  in  cases  of  prolonged  and  exhausting 
labor,  especially  where  men  are  exposed  to  ^rcat  heat. 

It  is  obviciusly  necessary  that  the  administration  shr.uhf  see  to  the  mure 
equitable  distribution  of  the  supply,  having  regard  to  the  number  of  the  day 
population  as  distinct  from  the  resident  population. 

Kcport   of  the  Commissioners   for  the   Northwestern   .\rea    page   ''5       Irlv 
1(..  1917. 


Whilst  we  consider  that  the  liquor  restrictions  are  a  cause  of  unrest  and 
are  disliked  as  an  interference  with  liberty  by  all  classes,  we  consider  that 
they  contribute  to  unrest  rather  th;in  cause  it.  .As  an  employer  sensibly 
observed  to  us:  "I  should  not  call  the  liquor  restrictions  a  cause  of  unrest, 
but  I  should  unhesitatingly  say  they  are  a  source  of  a  considerable  loss  of 
social  temper."  This,  we  think,  was  wisely  said,  and  the  matter  should  be 
sensibly  dealt  with,  not  from  the  high  ideals  of  temperance  reformers,  v.hose 
schemes  of  betterment  must  be  kept  in  their  jiroper  place  until  after  the  war, 
but  from  the  human  point  of  view  of  keeping  the  man  who  has  to  do  war 
work  m  a  g-.A  temper,  which  will  enable  him  to  make  necessary  sacrifices 
■•I  a  contented  spirit. 

Now.  from  the  days  of  that  good  Chri.stian  Socialist.  Charles  Kiugslcy. 
until  this  present,  there  have  been  a  large  number  of  human  beings,  some  of 
the  best  citizens  in  the  country,  to  whom  beer  is  not  only  a  beverage  but  a 
sacred  national  institution.  They  think,  perhaps  wrongly,  that  it  is  necessary 
for  their  work,  and  when  you  want  them  to  give  the  nation  their  best  work 
it  is  an  utterly  stupid  thing  to  deny  to  them  a  small  luxury  which  throughout 
their  lives  they  have  been  used  to  receive.  There  would  be  much  more  sense 
in  depriving  England  of  tobacco,  but  it  would  not  help  to  win  the  war. 

The  way  the  matter  has  been  put  before  us  by  sensible  men  and  \vomen 
who  are  not  faddists— and  it  is  only  fair  to  say  that  the  teet.italers  who  have 
spoken  to  us  on  the  subject  recognize,  like  sensible  men.  that  this  is  not  the 
time  to  seek  to  enforce  their  political  mission— is  that  a  reasonable  amount 
of  beer  for  workers  who  arc  used  to  it  and  want  it  should  be  given  to  them. 
We  find  that  the  hours  of  restriction  are  not  seriously  objected  to  by  the 
community.  The  women  decidedly  approve  of  them,  and  the  men  generally 
are  inclined  to  accept  them  during  the  war.  but  they  consider  that  they  work- 
hardly  on  certain  classes  of  men.  Workers  in  foundries,  such  as  molten- 
metal  carriers  and  others  who  work  under  terrible  conditions  of  heat  and 
have  hitherto  been  used  to  a  pint  of  ale  when  they  leave  work,  say.  at  5  30, 
hang  about  waiting  for  the  houses  to  open,  and  this  is  very  undesirable! 
•Again,  in  Liverpool  and  other  places  it  is  found  impossible  to  keep  men  on 
urgent  work  overtime  at  nights  past  9  o'clock  because  they  desire  to  quench 
a  natural  human  thirst  in  the  way  they  are  accustomed  to  do.  Societies  of 
Bufifaloev  and  Odd  I'ellows  and  similar  institutions,  who  are  used-  to  meet 


116 


,li\  tk.NMt.NT    CO.NIKUL    OF    Till-:    LIlJlOU    lUSIM'.SS 


I. 


aiicr  ll.t:r  ilny's  work  ami  take  tlicir  case  at  tluir  iiiii  ami  >eitU'  luisiiicss 
(,\er  a  social  glass,  can  no  longer  do  so  The  pmljlcin  i^  a  luinian  prnhlcm, 
anil  must  lie  dealt  with  at  the  moment  not  from  any  ideal  stamlponit.  hut 
hy  reeogniiiiig  that  you  can  not  get  the  hest  w(jrk  out  of  a  human  liemg  by 
unnecessary  interference  with  the  course  of  life  to  which  he  has  been 
accustomed. 

I'ar  nicire  important  than  hours  of  restriction,  which  could  prcjbahly  be 
easily  arranged  by  giving  b  cal  privileges  to  special  classes  of  men,  is  the 
m^re  serious  cause  of  unrest  aliout  the  price  of  beer  and  the  quality  sup- 
plied. Government  control,  if  it  allows  the  public  houses  to  be  open  at  all. 
sliMubl  at  least  insist  that  the  quality  of  the  beer  is  good,  and  that  reasonable 
(|uamities  of  it  are  supplied  at  fair  and  reasonable  prices.  The  chief  con- 
stable of  tl'.e  County  of  Lancaster,  who  thoroughly  understands  the  condi- 
tions lit  this  indnstrial  area,  writes  to  us  that  it  would  he  a  good  thing  if 
public  houses  remained  open  until  10  p.  M.,  and  he  considers  that  "the 
workingmen — especially  colliers,  ironworkers,  and  men  engaged  on  the  land 
— have  had  a  legitimate  grievance  in  not  being  able  to  procure  a  good,  whole- 
some beer  at  a  reasonable  price."  With  this  opinion  your  commissioners 
heartily  agree. 

I'll  III)  these  extracts  it  will  be  seen  that  the  chief  objections 
were  iint  to  the  restricted  hours  during  which  lifjuor  might  be 
Iiiireha>ed,  l)Ut  to  the  sheer  scarcity  of  it.  This  led  to  reconi- 
iiKiidatii'iis  that  a  slight  increase  in  the  productioi'  of  beer  be 
permitted  in  certain  areas  in  order  to  ease  up  the  situation. 

I'mm  the  fact  tliat  the  Central  Control  Board,  the  I'oixl  Ad- 
iuini>trator  and  this  Commission  of  In(|uiry  into  Inilustrial 
Unrest  all  showed  great  caution  and  a  willingness  to  cfimpromise 
;ind  iilacate.  we  must  conclude  that  there  was  serious  danger  of 
bad  ilemagogic  results.  These  men  were  prf>bably  in  a  better 
position  to  judge  of  those  matters  than  any  one  else.  The  fact 
that  bad  demagogic  results  did  not  follow  must  be  ascribed  to 
their  wisdom  and  tact  in  handling  a  difficult  situation. 

As  to  the  physiological  and  eccjuomic  effects,  our  best  evidence 
is  fiiund  in  the  reports  of  trhe  Central  Control  Board  itself.  The 
reduction  of  the  convictions  for  drunkenness  is  a  tangible  and 
measurable  fact.  This  implies  also  a  reduction  in  the  amount 
<if  time  lost  through  drunkenness,  and  an  increased  general 
etTiciencv,  but  this  is  not  measurable  with  any  approach  to 
exactitude. 

The  following  paragraphs  are  (juoted  from  the  First  Report 


CIKEAT    lUUTAIV 


117 


of   the    CiTitrril    Omtml    Board    (Liquor    Traffic)    dated    IJth 
October.  1915- 

7.  Since  the  orders  of  the  Hoaril  came  info  f,,rce  everv  npportunit\  has 
l.een  taken  to  jiuli^e  of  the  practical  efTcct  of  the  restrictions  imp.,sc.l  and  of 
the  otlier  measures  enacted. 

The  noard  have  ohtaincd  from  the  chief  co-istaMcs  in  the  f^rst  12  areas 
scheduled  fiK'ures  showing  particulars  of  prosecutions  ami  convictions"  fnr 
drunkenness  in  each  of  the  four  weeks  immediately  prior  to  the  commence- 
ment of  the  order  and  in  each  wp<>k  since  it  came  into  force. 

They  have  also  received  from  a  number  of  chief  constables,  medical 
oflficcrs  of  health,  employers  of  labor,  men's  representatives,  and  from  philan- 
thropic associations,  opinions  upon  the  working  and  effect.^  of  the  order. 

In  addition,  they  have  been  able  to  secure  the  services  of  Mr.  Sanders 
Clerk  to  the  Liverpool  Justices,  who  has  spcciallv  visit-d  for  them  most  of 
the  areas  which  have  been  dealt  with,  some  of  them  on  more  than  one  occa- 
sion since  the  orders  came  into  force,  for  the  purpose  of  reporting  to  the 
Hoard  upon  the  cfTects  of  the  orders. 

8.  Speaking  broadly,  the  information  obtained  points  to  the  following 
cnnclusions,  which  must  necessarily  be  rcKar.Ied  as  provisional,  owing  to  the 
short  duratioii  of  the  experience. 

There  has  been  a  considerable  diminution  in  the  number  of  both  the 
prosecutions  and  the  con^ictions  for  drunkenness.  The  prosecutions  for 
drunkenness  in  the  first  eight  areas  scheduled  in  I-ngland  and  Wales,  on  an 
average  of  the  four  weeks  prior  to  the  commencement  of  the  order  in  e.ich 
area  .subscfpient  to  the  commencement  of  the  orders  for  the  respective 
areas,  has  fallen  to  417,  a  decrease  of  over  40  per  cent.  The  corresponding 
figures  for  the  first  two  areas  scheduled  in  Scotland  are  695  and  585. 

Detailed  return^  received  from  some  areas  show  that  of  persons  charged 
some  have  more  than  1(10  previous  convictions,  many  more  than  50  and  a 
considerable  proportion  more  than  20.  The  uselessncss  of  applving  fine  and 
imprisonment  to  cases  of  this  character  wilii  a  view  to  their  reform  require, 
no  demonstration.  It  is  also  probable  that  in  such  cases  little  amelioration 
can  be  effected  through  the  available  methods  of  restriction.  The  Hoard 
are  of  opinion  that  inquiry  and  research  might  usefullv  be  made  witli  a  view 
to  discovering  some  method  of  treatment  giving  better  hope  of  effective  cure. 
In  addition  to  the  foregoing  figures  for  prosecutions  for  drunkenness  to 
vvhich  undue  importance  should  not  he  attache,!,  there  is  abundant  evidence 
that  drinking  has  diminished  in  many  of  the  areas.  Manv  witnesses  speak- 
ing of  their  own  areas,  mention  improved  public  order,  "a  better  cond-tinn 
in  the  streets,  and  an  improved  condition  of  the  children:  and  the  Board 
have  received  evidence  that  money  which  was  formerly  spent  in  excessive 
drinking  is  now  either  deposited  in  savings  banks  or  used  to  improve  the 
home. 

.Xn  interesting  corroboration  of  the  improvement  in  general  conditions  is 
the  fact  reported  by  observers  that  the  general  trade  of  the  sche:^uled  areas 
has   been    particularly   good   in   articles   comnionlv   re,|uire,l    bv    the    working 


lis         (,((\  I.KX  .Ml;.\  1     ((iNIKcil.    ()l       I  HK    l.lcjldU     lH.slM>s 


'K  .. 


tla>>cs.  till-  iiuirince  boinK  tluit  llic  traiU-s  wlilch  cater  f.ir  tlii-sc  rciiiiri-imiit* 
have  pmtiteil  !•>■  a  ilivcrsKni  nf  piircliasiiiK  power. 

On  St-pteml'iT  24  tlu-  lioanl  liclil  a  Cdtifcreiicc  of  chief  cuiistaMes  frmii 
areas  schc(hilccl  in  luinland  anil  Wale*,  at  which  the  nnanimdus  (ipinion 
was  expressed  that  better  nr  ler  ami  hehavinr  had  prevailed  generally  since 
the  cciminn  into  force  of  the  Hoard's  (irders.  and  that  this  result  was  due 
particularly  to  the  prohiliitinn  of  "treating"  and  of  credit  sales,  and  to  -.iie 
restriction  of  hours.  The  same  views  have  been  expresseil  by  a  number  of 
chief  constables  in  areas  scheduled  in   Scotland. 

These  initial  results  aiiioir  well  for  the  future,  thouRh  it  woubl  be  rash 
to  assert  at  this  stage  that  all  the  improvement  obtained  wdl  be  permanent. 

With  regard  to  the  efficiency  of  the  workmen,  and  the  increase  of  output, 
some  time  is  required  before  an  opinion  can  properly  be  expressed.  Up  to 
the  present  few  reports  have  been  received  from  firms  engaged  in  the  r^anu- 
facture  of  munitions.  Time-keeping  appears  better  in  certain  areas,  and 
from  all  areas  reports  have  been  received  indicating  an  improved  condition 
ot  the  men  coming  to  work  in  the  morning. 

Reports  from  the  harbor  cities  state  that  great  improvement  in  working 
conditions  has  resultdl  from  the  Hoard's  action.  Drunkenness  among  sail- 
ors, firemen  and  dock  laborers  has  diminished,  crews  signed  on  arc  more 
sober,  and  ships  are  able  to  get  away  with  much  less  delay. 

In  some  areas  difficulties,  or  even  disturbances,  wei  e  anticipated  as  not 
unlikely  to  follow  the  enforcement  of  restrictions  so  drastic  as  those  imposed 
by  the  Board's  orders.  It  is  tlierefore  satisfactory  to  be  able  to  report 
that  the  orders  lia\e  taken  ciTect  with  but  little  friction,  and  without  any 
breach  of  public  onlcr. 


Till'    fiillowin.L;    is    rinoti'd    from    the    Second    Report    of    the 
Central  Control  Board   (  Li(nior  Traftic)   dated  1st  May,   1916. 

Cll.M'Tl-K  \ir 


EfKKc  TS     OK     THK      lilLVK'''-;     OkIiKRS 

In  this  chapter  it  is  proposed  to  collect  and  set  forth  statements  and  par- 
ticulars which  have  reached  the  Board  from  various  .sources,  showiinr  the 
iiitluence  of  the  Board's  orders  upon  the  life  of  the  nation,  and  their  effects 
in  preserving  and  raising  the  genera!  standard  of  that  efficiency  which  is  so 
necessary  for  the  successful  prosecution  of  the  war.  This  will  be  done 
lartly  by  means  of  such  facts  and  figures  as  lend  themselves  to  statistical 
treatment,  and  partly  by  means  of  a  representative  selection  of  the  expressed 
opinions  of  responsible  [uililic  authorities. 

Under  the  first  head  the  material  available  consists  ol  the  figures  of  the 
convictions  for  drunkenness.  The  extent  to  which  *hesc  figures  can  properly 
be  regariled  as  bearing  upon  efficiency,  and  the  care  .  'lich  must  be  exercised 
in   (IrawinL:  conclusions  or   inferences    from   them,   will   be   referred   to   later. 


tiKKAT    llUlrAlX 


n9 


Here  ,t  «ill  Ik-  sufficent  to  ol.serve  thai  pul.hc  .Irunkcnncss-,,,  which  al.„K- 
tne  duty  of  the  Hoard  to  deal. 

The   Hoar.l   have   ohta.ned    from   the  chu-f   conMaMes    i„    .,  hed.iled   are.s 
^^ekly  return,  of  conv,c„o„,   for  drunkenness   from   the   date  a,   w    ch     he^ 

aratU>    for  the  several   areas  or  parts  of  areas,  and   summarued   i„  tahular 

S  r,on   7"^""""^  '-  drunkenness  had  l.een  rising  during  the  five  Ur! 

r    ■/'!."  '""''••"'^-  '"  '•'"  '""'■••'"^'^  ^PP-^^"<  i"  I'^l-t.  ami  in  the  earh. 
months  of  ,V  5,  and  it  w,.l  he  observed  from   Tahle   I  of  the  ap  ,      lix 
.tu-re   was   a   heavy    fall   upon   the  operat.on   of   the    lioarrl's   o  ders    a     al 
whah  has  heen  well  maintained  up  to  the  latest  date   for  wh.ch  c   mparati  e 
figures   are   avadahle.      The   part.culars   given    in    the    tables    prmtT  n     | 
appcnd.x  w,  I  repay  .letailed  atten„on,  but  the  foIlowiuR  f,«ure,    which  ha    ■ 
bc.n  selected  from   four  of  the  chief  industrial  areas,  con.mu.e' a  fl  r  ,Mus 
trat.on  of  the  general  tendency  of  the  figures  relating  to  England  and  V    e" 


Area 


HisTiiu  r 


Northeast  ] 
Coast \ 

Liverpool  and  ) 
Mersey ....  f 


\^EIKLY     AvrxnK     nr    TONVICTIONS     Fn« 
I>KirvkENNESS 

Firsts      <  weeks  ;  4  weeks  I  First 
IVU      iimnlhs      >"f"';f      followiiiK        « 

Boards      Board's     weeks 
1916 


ISIS 


<  Newcastle  and  seven 
(  other  Boroughs.. . . 
j  Liverpool  and  three 
'      other  Boroughs. 

Midlands         '•    i  Birmingham  and  six 

w    .  r,j  '     ',     o'iier  Boroughs.... 

West  Riding    (     (~     ,      „ 

_of_Yorkshire  l     /  Twelve  Boroughs. . . . 


1    iiu; 

159 

278 

238 

ss 

48 

131 

94 

order 

201 

225 

74 
97 


order 

107 

123 

22 
44 


111 

128 

27 
54 


Xo'^Trea'nrOri'!:'   "-":"""   "''   ''"  ^''"^"^   ^'^''''"'^      '"   '^'^   -"   ^ 
-No    Ireat.ng  Order  began  to  operate  on  October   11,    1915;   the   full   order 

estru:t,ng    hours,    etc.,    on    November   .'9.      The    record    of    conviction      fo 

drunkenness  in  the  City  and  the  Metropolitan  Police  District  is  as  rJnows: 


Weekly  Avcrape  for 


1014 
1 


•irst  six  months  of  191.i. . 

l-our  weeks  before  Xo  freating  Order  of  October  U  '  i9is \ 

■our  weeks  following  October  11  '        " ' 

■■our  weeks  before  full  Order  of  \ovemberi9 

1  liree  weeks   f,  .11,  ,vv  ing   November  29  

Two  weeks  ending  .lannarv  Z.  1916  (Christ 
hirst  eight   weeks  of    1016" 


I'or  London  and  the  whole  of  the  English  and  Welsh  bo 


1.301 


1.077 
.OOH 
718 
859 
606 


mas  period ) 950 

603 


roughs   '■iiecified 


<il 


■V      I 


IJO        .-.(.VKUNMICNT    CDNTKOl.   UV    11  IK    l.l..rni<    IH  SINESS 

111    r.iMc  I.  "i  t!"'  a|ilii-iiclix.  tlic  limirc*  of  i-nn\icii.)iis  f.>r  dnlllkf^lK•^1  arc  — 
ll\\Ui   .Icvr.!;,,-  f,,r 


V)U 


J.ii.U 


lirst  MX  mniitlis  of   l'M5   (Na%;il.  Milit.iry.  or  l.icensmg  JuMiocs    Ke- 

strictive  llr.liTs  opfraliiiK  in  most  horouKhs  I [■f>^' 

Tin-  four  weeks  followiiiK  llie   Hoarii's  onlers   (m  1915) l.'i/l 

itie  emh'  «<<ks  eiiaiiiK  I  ehruary  27.  I'Jlo ^^ 

The  four  weeks  eiuliiig   March  _'6,  1">1() **' 

I"or  the  Scottish  areas  specified  in  TaMe  III  the  fiKurcs  for  all  otTciises 
"involveil  in  .Iniiikenness  or  coinmitle.l  while  tinder  the  iiirtncn.e  of  drink" 
are : — 

Weekly   averas"-'    '"r   tlie   4   weeks   iirecedinj!   tlie    Hoard's 
irilers  (in  1915) 


l,4.i4 


Wee'dy  average  for  the  4  weeks  folluwins  the  Hoards 
orders    •  ■ ■  • 

Weekly  average  for  the  8  weeks  ending  lehruary  .7, 
IMU) 


1,1J5 

7' '4 


Weekly  average  for  the  4  weeks  ending  March  2b,  1QU>. . , 

Tlio  ixlfin   to  wliich  ciinvictinns   for  dninki-nno^s   li.uc   de- 
clined is  illustrated  liy  the  followin;,'  (graphs: 

WEEKLY    A\FR.\r,i:S    ol-     CnWICTlONS    I'OR    Dia-NKEXXEoS 

1j)N1>on  ami  4(1  r.oKiiii.iis  IN   I-:ni}1.anii  ami  Wales 

Population,  1J,516,586 


1909 

igio 

tail 

1912 

iei3 

1814 

IBIS 

lots 

igis 

1 1) 

j 

1         1      (20:!'.l'!         1  (20!!4) 

lltld            Afto'       IA«.oI<*,>eK« 
months     order       fending  J-^"  30 

(I'.n.vi^rtr^i 

■)1 

iTsii's^^ 

14 

/t 

y 

\ 

'"i-iJ^ 

1,20*. 

»; 

J.li 

( 

v^Jlji-^^^^^ii 

\ 

|l.l: 

■ 

\ 

i.l 

\ 

1 

1 

1 

■''K 

0) 

^•. 

(9.V.' 

)' 

i; 

1 

1 

..0 

(See  explanation  of  graphs  on  page  U3.) 


'.UKAI      111(11   \|\ 


1.' 


LoKdi  1,11  >  IN    Mil. r  AMIS  Aria 
I'dpiilatiim  l,J.i<,,J.U 


,fl 

, 

i< 

K>» 

1010 

ISO 

101  ;^ 

1 

BI1 

1014 

IBIS 

tots 

1 

(10* 

^ 

,  (llXil 

moflth* 

* 

or 

P 

A«  of  4  w^akt] 

> 

! 

4 — 

/ 

',(... 

P"'1\I 



— y 

/ 

S. 

- 

JiS 

z. 

— 

\ 

<87 

-r 

. 

/^ 

^w 

70 



.6 

^ 

^1 





1         1 

"■"" 

M: 

M 

k 

\ 

t^^ 

r 

.5 

■»^_ 

.).» 

\ 

' 

— 

' 

.4 



.■M 

"^ . 

— 

'"— 

.3 

— 

— 

— 

39) 

J  — L 

1 

^^^ 

_ 

■2i 

'.'B' 

L'y) 

BoRoiGHs  IN  Wept  Riri>  .  Area 
Population,  l,7a.',045 

-«  "T      I      ",'°  ""'  ■°"  '"^  —  l».»  ,„3  .„« 


IJJ         (,()\  I KNMINT    cnNIUol     or     Illi:    1  KjlOU    IIUSINEH 


•M 


n^ 


A  "if 


roiiulatioii,  73J,JS3 

leiO  1811  1BIJ .<!  I  1BI«  IBI^  191»  ipin 


4  0 

'~~~ 

1 

'71 

L'XlJ) 

UtO        1       Attar      lA«o^4Mt>vk« 

1  'J)'.*' 

^■\ 

J  '. 

.„. 

— 

/ 

:i  -.(, 

1  11 

(j:«  ) 

— 

.10 

( 

4.,., 

N 

'.'">*) 

1 

l:'T 

< 

iMOl 

L^ 

— 

\ 
\ 
\ 

— 

— 

— 

V 

'.Ml 

I 

^ 

■.^-f 

1  .1 

:ir'i 

1(1 

i 

2.0 


I^ 


BoROt  r,n>  IN-  XnnTTiRAST  Coast  Area 
Population,  m\210 

1000  IglO  ren  1^12  1813  1814  lOIS  iBia  icia 


1.6- 


1 
J.O 


... 

I 

IMi 

, 

1*16 

munihs 

ore 

tr 

ind;' 

B  J.»n  JO 

/ 

-u-r 

r-.jii,» 

) 

1 
1 

- 

1.71 

<^ 

\ 

lHl!l___— ^ 

~!."' 

/ 

\ 

■^H 

1 

'.1 

■ 

I.."i0 

\ 

HIT 

) 

L.-iii 

X, 

- 

i.-r 

I10»|i 

i.Ki:\r  iimiMN 


123 


LoNtoN    (Mcriiop,,!  rr\N    I'ui.i.  f.   Di^iki,  t  ash  Cirv) 
Fupiilati..!!,  /..'.Sd.lXHI   (.ipiirMxirnalc) 


-■  u 

1 

1« 

JT^ 

1 

»I3 

1010 

>  30 

IK 

I.in 

1 

■~ 

I.4S 

II 

.'."'J 

1  r;i 

M  7 

~j 

1 1; 

i 

! 

_^\ 

17 

\ 

,'lllKtl 

~ 

14 

— 

^ 

^,r. 

1 

— 

( 

:mi;i 

E 

\ 

K—  - 

1.-' 

i 

— 

^ 

; 

1.0 

trs^)    — 1 

t) 

1 

1 

\  I.VJI  ) 

sn      1 

Exri.ANAIKiN     (II      (JRAI'lm 

The  grapl,s  show  the  weekly  averages  nf  o„u„„„ns  f„r  .Jnu.kenn.ss  i„ 
areas  schcdultd  before  Dectmher.  1915 

The  .l.t  on  each  vertical  line  give,  ,h,s  aver.^e  f,,r  the  vear  or  other 
per.od  nuhcated  at  the  head  of  the  l,ne.  The  l.^ure  ahove  the  dot  is  the 
actual  weekly  average   for  that  penod,  and  the  figure  helow  the  d,.t  is  the 

rhT'i/.r'^^on  "'"'  "■  ^  P'°^"'"""  "f  '■•-"-•'>  ^O.m  of  the  population,  for 
uhi.h  the  1911  census  figure  has  I,een  taken,  possible  fluctuations  in  p„pula- 
t.on_due  to  causes  ordinarily  operating  or  to  the  war,  being  disregarded 

The  figures  of  convictions  for  l'X)9-1914  have  been  taken  fron,  the  annual 
L.cens„,g  Statistics":  those  for  the  later  periods  have  been  supplied  bv  he 
police.  The  figures  on  the  line  headed  -mS  after  or.ler"  in  the  fir.,  graph 
represent  the  average  for  periods  which  varied  with  the  dates  at  which  th 
orders  canie  into  force  ,n  the  several  areas  included  in  the  graph  the  earliest 
of  these  dates  being  August  .M.  and  the  latest  November   ^^ 

for  Vr""  I,""'''''  "'  ","  ^^""''  '"'  '"'"  "  ^•"^"''^  '"^  "'"^''  <hat  convictions 
for^drunkennes^   in  January  are  usually  below  the  general   average  of  the 


1_'4         uuM.K.NMlNr    lU.NlKUl.    UV     llli:    \.\n\\)i<    lUSINKSS 


\     «  , 


TiR-  Ukuv^<  Jii-t  KHin  and  thnsc  {n  the  :n<v>:nAiK  show  that  in  ladi  arra 
,n  1-Ms'!ana  and  Wale,  uht-rc  the  .-r-Ur,  a  the  Hoar,!  ha^c  operatc.l  ihc.c 
has  been  a  m.tahle  dechne  m  enactions  for  (lriinkenne>s.  '1  lie  L■ur^e,  iii  tlie 
graphs  indicate  that  the  restrictions  impose.l  dnrinK  the  first  >ear  ol  the  «ar 
hy  Jnsticcs  or  U  the  naval  or  military  authorities  led  to  an  immediate  de- 
crease in  convictions,  that  this  decrease  was  rapidly  accelerate,!  when  the 
Board's  onlers  were  issued,  an.l  that  the  suhseciueiit  improvement  has  heen 
progressive,  and  still  continues. 

The  considerations  which  may  he  urged  against  placing  an  undue  reliance 
upon  the  figures  of  convictions  for  drunkenness  are  well  known.  The  cus- 
toms and  the  standards  of  the  puhlic.  the  police,  and  the  magistrates  vary 
widelv  from  one  locality  to  another,  and  have  in  the  past  tended  to  vitiate 
comparisons  between  different  places  or  even  between  different  periods  m 
the  same  place.  More.ner,  it  may  be  agreed  that  numerous  special  causes 
due  to  the  war  mav  partly  account  for  the  results  shown.  Such  consie.crations, 
however,  do  not  materially  modify  the  inferences  which  must  be  drawn  from 
figures  which  show  such  rapid  clianges,  and  such  consistent  tendencies  as  are 
presented  hy  the  foregoing  graphs  and  by  the  fuller  particulars  records'  m 
the   ippeiuh.i;. 

These  figures  relate  only  to  public  drunkenness.  The  ctTect  of  the  (Irders 
on  such  matters  a.  improved  timekeeping,  or  enlarged  output  of  munitions, 
or  on  the  general  efficiency  of  per.sons  who  ordinarily  drink  intoxicating 
liquor,  but  not  to  such  excess  and  under  such  conditions  as  to  involve  their 
arrest' for  drunkenness,  is  a  matter  rather  of  opinion  than  of  ascertained  fact. 
Representative  opinions  on  this  question,  derived  from  a  large  nu.nbcr  of  per- 
sons or  bodies  well  qualified  to  judge,  are  given  in  the  succeeding  paragraphs. 

Kepokt-  RaEivF-n  Throihh  Government  Uepartments 
The  scheduling  of  a  large  proportion  of  the  areas  which  have  successively 
been  made  subject  to  the  Board's  orders  has  been  due  to  reciuests  or  sugges- 
tions made  hy  the  .Admiralty,  who  have  throughout  kept  the  Board  informed 
of  the  general  results  of  the  Board's  orders  upon  naval  efficiency,  including 
the  efficiency  of  the  work  of  naval  yards  and  of  the  Naval  Transport  and 
other  auxiliary  ..ervices.  The  most  recent  authoritative  expressions  of  opinion 
on  this  matter,  which  come  from  .'Xdmirals  and  other  officers  in  important 
commands,  are  summarized  hy  the  .Vdmiralty  as  confirming  reports  received 
earlier  in  the  year  that  "the  general  effect  of  the  restrictions  has  been  de- 
cidedly beneficial."  In  the  latest  report  received  from  the  .\dmiralty  (28tli 
March,  1916),  it  'S  stated  that  "Transport  officers  are  unanimously  of  the 
opinion  that  the  restrictions  have  had  a  considerable  benefit  upon  the  effi- 
ciency of  the  Transp.irt  Service,  and  the  principal  officer  at  Southampton 
has  commented  on  the  increased  efficuiicy  and  good  health  of  all  the  labor 
at  the  docks." 

Similar  results  have  been  rciiortcd  by  the  military  authorities  Thu-i.  m 
Dotober,  1915,  the  Army  Council  b.i-ed  a  recpiest  to  the  Board  to  underta'Ke 
a  further  extension  of  areas  so  a,  to  include  certain  localities  (which  they 
.specified  1     where      '^ops     ^ere    concentrated,    on    "the    satisfactory    results 


CKKAT    UKIIAIN 


1_'5 


wliK-l)  nrc  lieinR  nhtaiiicd  fnim  tlie  clusiiiK  orders  whicli  li.T-e  Ijceii  made 
liy  the  Central  Control  Hoard  in  tlie  areas  already  scheduled.  The  Army 
C.mncil  inlormed  the  Hoard  on  January  .'9,  1916.  that  "reports  have  n.iJv 
been  received  from  the  various  commands,  the  general  etTect  of  which  is  to 
show  tliat  the  orders  of  the  Hoard  have  had  a  heneticial  effect  on  the  disci- 
pline, training,  and  efficiency  of  soldiers,  and  have  helped  in  the  rcco\ery 
of  sick  and  wounded." 

Statements  have  also  been  received,  through  the  Board  of  Trade,  from 
the  larger  ports  with  regard  to  the  effects  of  the  Board's  orders,  which  are 
singularly  uniform  in  their  testimony  to  the  advantages  secured,  the  bene- 
ficial results  being  mainly  attributed  to  the  shortening  of  the  hours  during 
which  intoxicating  liquor  can  be  obtained.  The  work  of  the  ports  and  docks 
is  reported  to  proceed  with  improved  punctuality  and  efficiency,  and  in  gen- 
eral It  IS  affirmed  that  increased  sobriety  among  sailors,  firemen,  and  dock 
laborers  enables  shijis  to  get  away  and  to  proceed  to  sea  with  greater  dis- 
patch than  was  the  case  before  the  Board's  restrictions  were  introduced. 

Chiek  Constaulks 
Under  the  Liquor  Control  Regulations  the  duty  of  enforcing  the  Board's 
orders  rests  with  the  police,  and  the  Boaril  have  from  tin-  rirst  endeavoreil 
to  keep  in  close  touch  with  the  heads  of  the  j.  ilice  force  in  scheduled  areas. 
They  held  special  conferences  with  them  in  the  autumn  of  1915,  and  they 
have  received  frequent  reports  from  them  since  the  orders  have  been 
operative. 

Thirty  towns  and  one  county  in  England  and  Wales  from 
which  reports  were  received  testifieil  to  the  favoraijle  effects  of 
tlie  restrictions,  especially  in  regard  to  drunkenness  in  the  streets, 
drunkenness  among  women,  care  of  children,  loss  of  time  in 
factories  and  assaults  and  disturhances  due  to  drunkenness. 

In  regard  to  Scotland,  the  Second  ReiKjrt  says: 

\'arious  circumstances  have  contributed  to  make  the  successful  operation 
of  the  Hoard's  orders  in  Scotland  more  difficult  than  in  luigland.  While 
the  attitude  of  the  majority  of  the  licensees  was  that  of  loyal  support  to 
the  Hoard's  orders,  there  were  in  the  earlier  months  of  the  Hoard's  work 
many  instances  to  the  contrary.  The  imposition  of  comparatively  trivial 
penalties  for  breaches  of  the  orders,  and  certain  adverse  legal  decisions  by 
sheriffs— since  reversed  by  the  higher  C(-urts— may  be  said  to  have  disposed 
license  holders  who  were  not  well  affected  to  the  policy  of  restriction,  to  dis- 
regard the  provisions  of  the  orders.  The  Board  have  recently  taken  steps 
to  enforce  respect  for  the  '.r  .  7  licenses,  in  cas.-s  of  proved  misconduct, 
have  been  suspended  for  v  '  nder  of  the  period  for  which  they  were 
granted,  and  it  is  now  po=; .  port  an  improvement  in  the  situation 

From  13  towns  and  7  coumies  in  Scotland  come  reports  of 
p:ond  results  from  the  restrictions  of  the  Board.     The  reports 


126      covr.KNMK.vT  (n\n<t)i.  (IF    riii;  i.inrDU   lu  sinkss 

lay  stress  .,n  ihc  i^i'mr:\\  decrease  of  (Irunkeimess  ammii,'  ninles 
and  fLiiialcs,  on  more  orderly  conduct  and  improved  workman- 
ship and      nekeeping. 

The  n  1  ^rt  goes  on  to  say: 

The  Board  have  also  received  a  valuable  ipass  of  evidence  regarding  the 
beneficial  results  of  their  orders  upon  public  health  and  efficiency  from 
licensing  authorities,  medical  officers  of  healtl,.  resident  surgc.ns  of  hos- 
pitals and  numerous  other  officials  and  voluntary  workers  whose  dut.es 
bring  them  into  close  touch  with  the  industrial  life  of  the  nation.  At  a  time 
when  the  whole  community  is  engaged  in  the  prosecution  of  the  war  these 
opimons  have  a  definite  bearing  upon  the  questions  dealt  with  m  this  chapter, 
but  the  Board  have  preferred  to  confine  the  chapter,  so  far  as  the  publication 
of  expressed  opinions  is  concerned,  to  statements  reccive.l  from  government 
departments  and  public  officials  directly  concerned  with  the  effects  and  ad- 
ministration of  the  orders. 

In  the  Third  Report  of  the  Central  Control  Bon-d  (Liquor 
Trafiic)  dated  10th  August,  1916,  Appendix  1,  are  the  following 
tahles: 


GREAT    BRiTAIN 


127 


TABLE   I 

Weekly  Averages  of  CoNvitrinNs  for  Drixkenness*  in  Areas  Scheduled 
LP  TO  THE  End  of  1916 


Area. 


F(,r  the 
four  weeks 
imineiiiatcly 

l.ef.irr 

the  order. 

.Areas  in  England  and  Wales: 

L<indon   ion 

Shorncliffe 

Southeastern 

Southern  Military  and  Transport 

Eastern 

Bristol  and  Bath   [  140 

West  Gloucestershire   

Hereford   

Plymouth  

I'almouth  

Midlands  

East  Midlands y  190 

Staffordshire   ^ 

Lancashire  and  Cheshire   '  431 

West   Riding   ) 

Humher  J  -58 

Xortheast  Coast  320 

Western  Border  (English  part) 25 

Welsli   (i.e.,  Wales  and  Monmouthshire)     116 


For  the  four  weeks  ending 
For  Jan.  28,  Feb.  25,  M.ir,  25. 
1916.t      19i;.        1917.        1917. 

5o8   568   476   428 


82    65 


39    58 


92 


70 


59 


r 


142 


127 


112 


60 


293 

232 

226 

210 

141 

129 

128 

102 

182 
42 
87 

143 
30 
77 

128 
36 
71 

121 
28 
68 

Total  2471       1487      1314      1193      1075 

Areas  in  Scotland : 

Western  Border  (Scottish  part) 23 

Scotland.  East  Central   258 

Scotland,  West  Central   %3 

.Scotland,  Northern   ^ 

Scotland.  Northwestern   

Scotland,  North  Coast   

Orkney  and  Shetland  


25 

13 

16 

16 

169 

1.39 

153 

124 

611 

534 

471 

441 

99 


Total  1J«5        947        s\3       752       t>m 

.\reas  in  Great  Britain,  Total 3956      24,34     2127      1945      1755 

*  Tn  those  tallies  of  convictions  for  drnnkeiiness  the  figures  for  England 
and  Wales  include  the  con\ictions  for  simple  drunkenness,  drunkenness  with 
aggravations,  and  drunkenness  at  the  same  time  as  other  distinct  ofTenses  ■ 
the  figures  for  Scotland  include  the  convictions  for  all  oflfenses  involving 
drunkenness  or  committed  while  under  the  influence  of  drink. 

tThe  whole  year,  or,  if  the  order  came  into  force  in  191(5,  the  part  suhse- 
c|uent  to  the  commencement  of  the  order. 


IJiS        (;()VEKNMi"N'r    CU.NIKUL    Ul'     iiit    i.ls^UOK    litSl.NEbS 


and   L'itv)  — 

r.iimUition   (1911),  7,46/ ,30/ . 


TABLE   II 

COVVHTIONS    lUR    L  ..L-NKENNtSS    IN    (.Klu.\TKR    LoNOON    AND   THE    3(.    RuROCGHS 

i.N  Eni.lam>anii  Walk,  with  ,\  IN.i'Li.atiun  of  Over  UK).U<)U 
r.rciter   London    (Metropolitan    Police    l)i>trict 

1913.  1914.  1915.  1910. 

.,  ■                                                                        4cS.=i.?.S  49,077  35.8<yj  19.478 

l^le".^^''^'^''^^'''-''''''-''--''-'--'    ^"'^=^  l**'^'''  ^^■^^'^      ^'^^"J 

■l„,.j,^  05.488  07,654  51.830  29,453 

Boroughs,  England  and  Wales    I  3o )  — 

Population  (191  n.  8.4iK.,37 J.  ^^  ^^    ^^^^^     ,^  ^^^     ^^  .^^ 

p.^'j^ig- ;;;;;;;;;;;;;;;;;;;;;;;;; ;;;;;;;..  11,399  ii,j58   9,959   6.097 


Totals 


Total  Male  Convictions.. 
Tot.il  1-cmale  Convictions 


5i,779    49,835 


23.330 


89,915    87,654    02,907    36,711 
2H.3S1    29,835    25,929    10,072 


-i-,,j^l^  118,267  117,489    88.836    52,/83 

TABLE    ill 
Co.svuT.oNs  FOR  DRrNKEXNF.ss  IN  Gre.vtkr  Loni)on  for  the  First  Qc.^rter 


OF   E.\CH    OF  THE    L.VST    I'"lVE   YeARS 


1913. 

1914. 

13.900 

10,(K»7 

CoNVIlTION.- 

1915. 
14.076 


1916. 
7,744 


1917. 
0,176 


(n     Bi-forc    and    After    Ih 

of  the  H.'.ird 
Weekly  Average—  _       _   .^ 

For  first  SIX  months  of  191.-^..   .-'— 
Alter  Ijrder  (.\ug,  2J)  to  en.l 

of  1915  ■*•« 

For  four  weeks  ending  — 

lanuarv   30,   1916 j40 

Feliruarv  27.  19lo 3/0 

March  26,  1916 2-% 

.\pril  2,?.  1916 --^^ 

Mav  21.  1916 -43 

lun'e  18,  1916 -]•]{ 

'Inly   16.   1916 342 

August   13.   1916 .!49 

September   10.   1916 311 

October  8,  1916 .v;9 

Novemher  6.   1910 328 

December  3.  1''16 3.8 

December  31.  1916 ■3^'1 

Tanuarv  28.   1917 -'»<; 

Februarv  25.   1917 234 

March  25,  1917 -1-5 


TABLE    IV 

K  Driskenness  in  Gi..\scow 
)rdcr 


(2)     for  the   First   Qii.trtcr   of  the 
Last  l-iz\-  i'l-jrs 

Male.    Female.  Tot.il. 

I'irst  Quarter  of 


1913. 
1914. 


4.220  1.633  5,853 
5.156  1,771  6,927 

i9i5 4.594  1,697  0.291 

1916 

1917 


2.866  1.172  4.0,i8 
2,128  1,025  3,153 


UKEAT    UKITAIN 


129 


TABLE  V 

Beer  ant>  Spirits  Charged  with  Dity  for  Home  Consumption  is  the 
United  Kingdom 

Bee-.  Spirit^, 

rjnancial   Year.  Standard   liarrcls.  Proof  C.alloni. 

1913-14  35,372.(VTO  32.596.(10(1 

1914-15  32,525.1)00  34.345.()(K) 

l''15-lb  29.62f).00()  35.597,000 

1916-17  (provisional.)    25.905,000  23,9V8.00O 

TABLE  VI 

Deaths  Certified  as  Due  to  or  Connected  with  Alcoholism   (Excluding 

Cirrhosis  of  the  Liver*)  in  England  and  W  ales 

IN  Each  of  tuf.  Yf.ars  1913-1910 

(From  the  Registrar  General's  returns) 

1913.        1914.       1915.       1916. 

Males    1.112        1.136  867  620 

Females   •    719  6«0  584  3.^i 

Totals  1,831        1,816        1,451  953 

•  TL-  deatlis  certified  as  due  to  cirrhosis  of  the  liver  were  as  follows: 

1913.  1914,  1915.  1916. 

Male-i     2.2\S  2.J66  2,107  1.R:3 

I-cniiles    I,6o5  1.773  1,5J'  1,163 

Totals     3,t.\)  4,W)  3. 133  2,986 

TABLE    VII— LIVERPOOL 

(A)    Conviction?   for   DRUfKENNESs,    (B)    Cases   of   Delirium   Tremens 

Treated  in  ProR  I  .\-.v  Inhrm.\ries,  and  '(C)  De.'KThs  from  ExctssivE 

Drinking,  in  Livekpo^jl,  in  Three  U-Month  Periods 

(Figures  fuinished  by  the  Medical  Officer  of  Health) 

Period  of  12                       (.X)  Convictions  for  fBlCasesof       fC)  Deaths  from  Er- 

Mouths  Ending  .\ug.  15.                Drunkenness.  Delirium  Tremens.        cessive  Drin);'ng. 

M.          F.         Total  M.       F.     Total        M.        F.      Total 

1.  1913-14 P.679    3.S22    13,201  366    145    511        85        41      126 

2.  1914-15 7.290    3,838    11,128  263     158    421        57       51      108 

3.  1915-16 4,355    1,922      6,277  128      77    205        35        14        49 


In  Appendix  II  of  tbe  Third  Report,  under  the  heading 
"Drinking  among  Women"  is  given  a  "Report  of  Specia!  Inves- 
tigation in  tliu  B'rmingham  District"  as  follows: 

1,  In  June,  1916,  a  -^otiiiu:.  wRs  sent  *o  the  Board,  bearing  37,155  signatures 
of  women  and  girls,  requesting  that  an  order  be  made  whereby  no  girl  in 
Birmingham  and  district  under  the  age  of  21  should  be  served  with  intoxi- 
cating liquor  or  allowed  on  licensed  premises  until  three  months  after  the 
declar.ition  of  peace.     The  grounds  for  this  peti'.ion  were  the  large  number 


130         GOVFRXMKNT    (OXTKOI.    OF    THE    LIQUOR    BISINESS 

Convictions  for  Uklnkennkms  in   GstAitR  London 
1909-1916 


I'.  'I 


'^  U 


MALES 

ieo5""     IBIO             IBII             1812            IBI3             IBl"            IBIO             '>"° 

50.900 

— ■ f^ 

— 

tt.tnr 

40,000 

40.000 

«I,57S 
P7-) 

35,|1M 

30,000 

3 

2.H 

30,000 

' 

20.000 

18,4  ™ 

20,000 

10.000 



~ 

_- 

.._- 

-- 

— 



— 

10,000 

:o,ooo 


ic.ooo 


8.000 


4,000 


FEMALES 


ISIO  leil  IBI^  1813  l»l-»  '9'S  l»'6 


I5.M3 


'/  ;■ 


i 


///', 


i 


20,000 


ICOOO 


12.000 


«,00O 


4.000 


liKEAT    lUUTAI.V 


131 


CoNVRiioNs  FOR  Drunkenness  in  the  36  Boroughs   in   England  and 

V\aLES,   with   a    PopriATlON   OF  OVER    100,000 

1909-1916 


50.000 


40.000 


30,000 


1^0  IgXD 


20.000 


10,000 


'iM. 


^ 


MALES 


'»"         iBia         ieii         \ai*         iSis ISIS 


rW2 


i 


-i-J L 


y/'/i 


'& 


50.000 


40,000 


30.000 


;p,Qoo 


m.ooo 


.^.^^ 

FEMALES 

"^"        '»"°         ">»         18J2         181-3  ■   "lel^ iSIs ieio 

20.000 

16.000 

2a  000 

E.OOO 

16,000 
12.000 

0; 

i 

1 

8.000 
4.000 



8,000 
4,000 

r^^M 

'z; 

i 

121 



■ 

132         GnVFKNMI'NT    rdXTKOL    OF    TUK    I.HHOR    lUSINTSS 


'.•I 


•J 


of  girls  that  li.i.l.  It  was  believed,  ccase.l  to  he  total  abstainers  since  'he  war. 
alk-Kfd  increase  ,.f  drinking  parties,  and  observations  of  public  liou-cs  show 
inK  large  numbers  of  women  fre.iuenling  tbem.     The  petition  was  sui-P'Ticd 
by  the  Lord  Mavor  and  the  Chairman  of  the  Licensing  Justices. 

2.  At  the  meeting  of  July  18.  I'JlO.  llw  lioard  approved  fue  report  of  the 
comnmtee  to  which' the  petiti.in  had  been  referred  in  the  first  m>tance.  Tlu- 
foll.wiiig  is  an  extract  fr.-ti  this  report;  "The  statements  bear  doseiy 
upon  tlie  condition  of  girl  workers  in  munition  facb.ries  and  it  has  been 
ascertained  from  the  Director  of  the  Welfare  Department  ..f  the  Ministry 
(.f  .Munitions  that  he  would  welcome  investigation  of  this  matter.  Tlie  com- 
mittee recommend  that  the  Ho.ird  should  undertake  such  investigation  with 
a  view  to  seeing  whether,  and  how  far,  their  powers  could  be  used  to  remedy 
any  evil  which  may  be  found." 


8.  The  evidence  received  by  the  committee  from  these  various  sources 
did  not  point  to  any  recent  increase  of  drunkenness,  or  indeed  of  excessive 
drinking.  It  was  authoritatively  and  emphatically  stated  that  the  broken 
pledges  of  persi.ns  |)ledgcd  to  total  abstinence  had  "very  infrequently"  led 
to  intempeiance.  Some  specific  instances  were  produced  of  drunkenness 
among  women,  but  these  were  usually  among  women  who  drank  before  the 
war  and  had  now  greater  opportunity  tlirough  increase<l  incomes,  and  in  some 
cases  increased  drinking  was  attributed  to  the  absence  of  the  controlling 
influence  of  the  husband. 

9  It  was  generally  agreed  that  the  prr.Mcm  was  one  of  large  numbers 
of  women  taking  alcoholic  liquor  to  a  moderate  dcs-ree.  It  had  theretore 
to  he  considered  by  the  committee  in  close  connection  with  the  present  con- 
ditions of  the  cit;  of  l!irmins'<am  as  regards  its  increased  female  and  i'^ 
decreased  male  population. 


13.  The  returns  submitted  by  the  police  authorities  in  Birmingham  in 
respect  of  convictions  and  arrests  for  drunkenness  appear  to  indicate  _a 
steady  and  rather  remarkable  decline,  and  tours  of  inspection  by  police  offi- 
cials'have  not  revealed  such  increase  of  excess  as  has  been  alleged.  The 
following  tables  show  police  figures  of  arrests: 

(a)  Arrests  of  men  and  women  for  drunkenness  in  periods  of  2._  days 
before  and  after  rd's  order  (November  22,  1915),  compared  with  same 

periods  in  two  preceding  years: 


19th  .\pril  to  21st  November 

M.ile.    Fenvile.  T..tal. 

1913  2./61     6M     3..194 

igt. 2,W4      672      .l(to6 

i9is; ;.';;.' ;;;....  1.504  437  1,941 

>,'  r,  _14  November,   1914.     Brewers'   Association  Order   forbidding  sale 
of  intoxicating  liquor  to  women  before  11  .\-  M  „   , ,  m  p    vi 

25  March.  1915.    Justices  order  restricting  hours  to  10  .\.  M.  to  lU  p.  M. 


22d  November  to  1st  July- 
Male.  Female.  Total. 
19n-14  .        2 'Kin     624     3..524 

1914-15  '. ].     1.218     40''     1,627 

1915-16 647     217        863 


(.KKAT    IIKITAIN  J  33 

(!')   Arrests  <,!  women   f..r  .Ininkcnness  in  yearly  pcrio.U    1906-1915- 

i;^)o    I'^i;      \<m      vm      vm      vm-     lou      v>u      iqu      1915 

■•'**/        /.'J         632         o«6         -5f.         846       1,0J3       1,030         928         667 
*  1911,  boundary  of  city  enlarged. 

}Je%n"ll''  "^  ''""""   '"'  '''""'^'*"""'  '■"  ^*^-"'""thl.v   periods,  January- 
January  to   lune,   I')I4  ,,, 

January  to    lunr,    l';15.    .  A, 

January  to  June,   1916 ........'.  . .' .' .'  [ .' .' .'.'.""     igj 

(d)  Keturn  of  soldiers'  wives  who  have  come  Into  hands  „i  police  throuRh 
drunkenness :  ° 

1914  1915  19,6 

8  93  19 

proa";::in^te ;;;  I^j^^^^^^^^i  '"'  ^'"-^- "  ^-^  --'^ 

17  Much  of  the  evidence  h«fore  the  committee  seemed  to'show  that  such 
proMem  as  exists  in  relation  to  .Irink  amouR  women  is  one  that  is  concerne.l 
w<th  future  evils  which  may  arise  from  present  conditions  rather  than  v»ith 
existing  evils. 

18.  The  v^•ome^  employed  in  Birmingham  in  factories  and  in  other  work 
are  very  numerous,  and  are  increasiuK  in  numher :  the  association  with  men 
■  n  work,  and  the  frequent  adoption  of  some  „f  the  hahits  of  men  workers 
has  led  to  an  mcrea.se  in  the  numher  of  women  who  drink  intoxicating  liquor 
and  frequent  public  hon^-s.  This  occurs  among  women  of  all  ages-  and 
.nspection  of  about  .W  or  60  public  houses  at  various  times  showed  a  good 
many  women  frequenting  them,  the  number  of  women  being,  however 
substantially  less  than  that  of  men;  they  were  mostly  older  women  and  also 
R.rls  of  apparently  about  20  years  and  upward,  but  very  few  can  have  been 
below  the  age  of  18;  in  almost  all  cases  these  women  and  girls  were  in  the 
company  of  men.  No  drunkenness  was  seen,  and  no  substantial  evidence 
was  submitted  to  the  committee  that  there  is  an  increase  of  v.  omen  indulging 
m  alcoholic  hquors  to  excess.  The  representative  deputation  from  the 
hcensed  trade  informed  the  committee  that  in  addition  to  the  ordinary 
police  supervision  they  employ  their  own  detectives  to  supervise  their  trade 
and  that  they  have  taken  steps  to  discourage  women  from  lingering  on 
licensed  premises.  The  trade  also  gave  evidence  indicating  the  action  they 
women  ^  ''""^  '°  removing  tendencies  to  excessive  drinking  among 

19.  Some  witnesses  stated  that  it  was  their  belief  that  immorality  was 
on  the  increase  and  was  traceable  to  alcoholic  excess,  but  on  these  points 
the  committee  were  not  furnished  with  any  evidence. 

20.  Previous  to  taking  evidence  the  committee  reviewed  the  situation  as 
affected  by  recent  changes  in  I'.irmingham.  First,  there  is  the  effect  of  the 
restrictions  of  the  Central  Control  Board  (Liquor  Traffic)  particularly  in 
respect  of  a  reduction  of  hours  for  tne  sale  of  intoxicating  liquor,  which 


134        GOVKKNMIN  r    IDN'TUOL   OF    TUF    i.igroK    nUSINESS 


I 


•^  ^l 


niubt  iiicvitalily  Ica.l  to  a  greater  or  less  (lesrre  nf  concentrati.Mi  of  persuns 
111  [iiiMk-  li.mses.  Sccniidly.  tlu-rc  li.i*  Wen  a  Milistaiitial  rt-iliictu.ii  in  the 
niak-  iKipiilatiun  owiiiK  to  the  reiiiark.ilile  response  of  tlic  men  of  liirmmKhain 
in  ansvseruiK  tlic  call  to  the  colors.  Thirdly,  there  lias  l*en  an  unpriccUntcd 
iiitlux  of  women  «.  rkers.  These  three  chants  arc  likely  to  have  exerted 
a  profound  elTcct  upon  the  social  life  of  the  city  and  a  relative  increase,  as 
v^el!  as  an  apparent  increase,  in  the  number  of  vNomcii  attendiiiK  puhhc 
houses  is  unav.ndaMe  Many  of  the  witnesses  who  prcs.  .ted  themselves 
to  the  committee  had  failed  to  appreciate  the  magnitude  or  etTect  of  tliese 
rhaiiKcs. 

Jl.  The  evidence  the  coiiiimttec  have  had  shows  that  tlurc  <iri-  d  /jr./.' 
number  of  ic.oh,-.i  7<7i.>  fi,;ni,-nl  /•k/./iV  Iwiiscs.  but  they  have  ho  <•-  rJ.iic- 
thill  UHV  W^"'  iiiimb.r  of  th.sc  zc,>m<n  arc  driiiA-iiiy  to  fxass,  or  that  muni- 
tion work  is  being  materially  dcla>ed  or  interfered  with  on  this  account. 
The  committee  have  no  means  of  calculating  the  percentage  of  the  female 
population  who  make  use  of  the  public  houses,  nor  have  they  been  able  to 
arrive  at  any  accurate  figure  with  regard  to  the  ages  of  those  who  do.  The 
evidence  was  conclusive  on  the  latter  point,  but  from  what  the  committee 
themselves  saw  ihcy  believe  that  the  majority  are  over  Z\  years  of  age. 
Again,  they  have  not  found  it  possible  to  ascertain  definitely  whether  the 
percenlagc  of  women  u-ing  public  houses  is  greater  than  before  the  war,  but 
they  think  there  is  a  strong  presumption  that  the  number  is  greater,  not  only 
actuallv  but  relatively  to  the  population  They  believe  that  this  is  due  to 
various  causes,  but  chiefly  to  the  gradual  alteration  of  public  opinion  with 
regard  to  greater  freedom  of  manners  and  customs  among  women,  and  the 
increased  wage  now  being  earned  by  women  and  girls.  They  believe  that 
the  employment  of  women  in  the  same  industrial  work  as  men  has  led  to 
the  gradual  adoption  by  women  of  some  habits  and  customs  hitherto  par- 
ticular to  men.  and  that  the  pu  vailing  opinion  among  young  people  of  both 
sexes  no  longer  acts  as  a  restraint  and  does  not  condemn  a  young  woman 
for  having  a  glass  of  beer  or  stout  in  a  public  hou.se  with  or  without  her 
men  friends.  They  think  that  this  tendency  to  greater  freedom  of  manners 
is  likely  to  continue. 

22.  Further,  they  wish  to  record  their  deliberate  opinion  that  public  hoi  ses 
as  constructed  and  conducted  at  present  are  most  undesirable  places  of  re.ort 
both  morally  and  physically  for  young  people  of  either  sex. 

23.  The  witnesses  were  almost  unanimous  in  desiring  that  some  measure 
should  be  taken  to  prevent  young  women  frequenting  public  houses,  but  in 
view  of  the  fact  that  this  habit  does  not  appear  at  present  to  involve  either 
excessive  drinking  on  the  one  hand  or  interference  with  munition  work  on 
the  other,  the  committee  have  no  alternative  but  to  advise  the  Board  that, 
within  the  terms  of  their  reference,  there  is  no  immediate  call  for  restrictions 
in  this  regard  They  wish,  however,  to  add  that  among  the  remedies  which 
have  been  suggested  to  them  are  two  which  they  think  it  well  briefly  to 
mention:  (a)  The  improvement  of  public  houses  in  order  to  render  them 
fit  and  appropriate  places  for  women  and  young  people;  (b)  .'\n  order 
prohibiting  the  sale  of  intoxicants  in  licensed  premises  to  woi.ncn  under  21. 


'■.KKAT    IIHir.MN 


l.?5 


(a)  The  improvfrtifnt  r,f  con.lilion,  in  public  houses  involves  marn  .li* 
cult  and  controversial  matters.  If  left  to  private  effort  it  would  prohal.ly 
he  sliKht  and  of  slow  growth  If  „„dert,ken  hv  the  state  or  ,l.c  munu,- 
pality  It  woul.l  involve  a.lniMiistrative  qur,t,ons  of  lar^e  dimensions  whuh 
seem  to  the  committee  to  lie  mitsidc  the  terms  of  their  reference. 

(h)  The  pr,-,..  sal  to  issue  an  or.ler  prohihitinK  the  sale  of  intoxicants 
in  licensed  premises  to  women  under  Jl  was  supported  l,y  almost  all  wit- 
nesses before  the  committee  Such  an  order  is  a  measure  which  would  if 
necessary,  !«■  adopte.l  at  once.  It  miwht  have  the  eflfect  of  increasinR  home 
'-inkMiK  and  it  wouM  not  necessarily  keep  young  women  out  of  public 
houses  and  mi^ht  therefore  fail  to  protect  them  from  the  possibility  of 
demornb.,„K  iiifluetice.  It  is  open  to  the  objection  that  it  involves  adm'inis- 
trative  action  for  one  sex  only,  and  t,  justify  .such  action  a  stronp  case 
of  excessive  drinking  among  that  sex  ^d  at  a  certain  age  should  be  pn>ved 
which  m  this  instance  is  not  the  case.  Xor  have  the  committee  received  any 
evidence  indicating  that  such  drinking  as  exists  is  imerfcring  materially  with 
the  output  of  munitions.  Many  witnesses,  however,  although  they  recog 
M.zed  that  there  was  little  or  no  excessive  drinking  among  women  at  the 
present  time  m  liirmingbam,  were  strongly  in  favor  of  such  an  order  as  a 
preventive  measure,  but  the  committee  after  careful  consideration  find  them- 
.selves  unable  to  recommend  a  preventive  measure  for  one  city  only  md 
where  excessive  drinking  has  not  been  proved  Such  a  preventive  measure 
applied  generally  may  be  desirable  but  is  outside  the  terms  of  their  reference 

24.  A  modified  form  of  this  proposition  to  include  hoys  and  girls  under 
18  w-as  suggested  to  the  committee.  Kor  similar  reasons  to  those  above 
stated  the  committee  are  unable  to  recommend  such  a  course  of  action 

25.  Iinally.  the  committee  wish  it  to  be  understood  that  they  recognize 
that  a  problem  in  respect  of  the  relation  between  women  and  public  houses 
does  exist  ,n  consi.lerable  degree  in  Birmingham.  Nor  does  it  appear  to  be 
a  passing  phase  only.  But  the  solution  of  this  problem  seems  to  lie  outside 
the  reference  to  the  committee. 

(Signed)     C.EoRfT.  N'ewm.w.  Chairman. 

Kl.I.F.N    I'.    PlNSF.NT, 

Ei.jz.^nETH  Ma(  An.\M, 

Hilda  Maktindale. 
G.  C.  Brooke,  Secretary. 

10th  .\ugust,  1916. 


PARr   II-THE   UNITED   STATES 


v.;^. 


CHAPTER    VI 

Why  America  Tends  toward  Prohibition 
Rather  than  Control 

The  situation  with  respect  to  alcoliolic  drinks  at  the  beginninj^ 
of  the  war  is  soniewliat  difficuh  to   summarize.     Statistics  of 
production  and  consumption  are  available  and   fairly   reliable, 
but   the  question  of   drunkenness  nr   national   inefficiency  is  a 
very  elusive  one.     The  moral  side  of  the  problem  lias  been  pre- 
sented in  season  and  out  of  season  by  temperance  reformers  for 
several   j,'enerations.      Since  we  entered  the  war,  however,  the 
economic  side  of  the  (luestion  has  been  uppermost.      Here,  as 
in   other  countries,   the  arf^ument    for   the   repression   of   drink 
during  the  war  has  been  based  mainly  on  two  forms  of  waste: 
first,  the  loss  of  efiiciency  through  drunkenness,  and  second,  the 
waste  oi'  food  materials  in  the  manufacture  of  potable  alcohol. 
Liquor  control  in  this  country,  long  before  the  war,  came  to 
mean  prohibition,  local,  -tat.-wide  or  national.     It  was  long  ago 
found  that  with  our  liber.d  liabits  in  the  si)en(ling  of  money, 
high  license  and  excise  ta.xes  had  practically  no  effect  on  the 
.-"nount  of  alcohol  consumed.     These  devices  increased  the  cost 
of  drink  to  the  drinker,  but  he  has  generally  found  the  money 
to  pay  the  price.     Some  unsatisfactory  experiments  have  been 
tried   with   the  dispensary   system,  but   they  have  not   inspired 
much  public  interest.     It  was  naively  argued  that  men  drank, 
not  so  much  because  they  wanted  alcohol  as  because   it  was 
forced  upon  them  by  men  who  made  a  profit  from  its  sale.    This 
argument  overlooked  the  fact  tl.at  it  is  not  easy  to  make  a  profit 
trying  to  sell  something  that  is  not  wanted.     There  is  no  object- 
tion  /rr  .?.-  to  pushing  the  sale  of  anyiliing  which  it  is  desirable 
that  people  should  buy.     In  fact,  it  may  be  highly  advantageous 
to  have  an  object  of  real  utility  placed  before  the  people  in  the 

139 


140      go\'ek.\.mi:nt  control  of  the  liquok  ei'sixess 


tt 


I, 


■'(1  '^•' 


most  alluring  forms.  Were  this  not  so,  we  could  scarcely 
justify  the  preaching  of  Christianity,  or  the  staging  i>f  a  cam- 
paign for  the  sale  (if  liberty  honds.  The  real  objection  to  push- 
ing the  sale  of  alcohol  must  i)e  l)ased  either  upon  the  proposition 
that  people  ought  not  to  drink  it  at  all,  or  that  they  ought  not  to 
drink  it  except  in  moderation.  Tliose  who  accept  the  proposition 
that  people  ought  not  to  drink  it  at  all,  and  reason  logically  there- 
from, are  likely  to  say  that  if  people  ought  not  to  drink  it,  it  ought 
not  to  be  sold  at  all,  either  at  a  profit  or  without  a  profit.  Those 
who  take  this  position  may  admit  that  the  monopolizing  of  the  sale 
of  liquor  by  the  State  might  serve  as  a  temporary  makeshift 
until  a  more  thorough  method  could  be  adopted,  but  beyond  that 
tliey  would  not  admit  the  validity  of  the  argument  for  I'lie  dis- 
pensary system. 

To  one  who  takes  this  uncompromising  attitude  toward  drink, 
an  equally  uncompromising  attitude  toward  the  manufacture  and 
sale  of  drink  is  a  logical  necessity.  He  would  see  no  better 
reason  why  the  State  should  try  to  eliminate  fhe  evils  by  merely 
removing  the  pri'fit  making  motive  in  the  case  of  drink  than  in 
tile  case  of  sexual  immorality.  A  State  conducted  brothel 
woulil  be  no  more  illogical  to  him  tlian  a  State  conducted  saloon. 
As  a  matter  of  fact,  publicly  owned  and  conducted  brothels  have 
been  alxjut  as  common  in  the  past  as  publicly  owned  and  con- 
ducted saloi  ins  are  todav. 


Perhaps  tlie  most  incredible  case  to  illustrate  tlie  power  of  the  mores  to 
extend  toleration  and  sanction  to  an  evil  thing  remains  to  t>e  mentioned — the 
lupanars  which  were  supported  by  the  medieval  cities.  .Xthencus  sa\s  that 
Solon  caused  female  slaves  to  be  bought  by  the  city  and  exposed  in  order  to 
sa\e  other  women  from  assaults  r.i  their  virtue.  In  later  times  prostitution 
was  accepted  as  inevitable,  but  it  was  not  organiied  by  the  city.  Salvianus 
.  .  .  rijiresents  the  brothels  as  toloratcd  by  the  Roman  law  in  order  to 
prevent  adultery.  Lupanars  continued  fo  exist  from  Roman  times  until  the 
Middle  Ages.  Those  in  southern  Europe  were  recruited  from  the  female 
pilgrims  from  the  north  who  set  out  for  Rome  or  Palestine,  and  whose  means 
failed  llicm.  it  is  another  social  phenomenon  due  to  poverty  and  to  a  specious 
argument  of  protection  to  women  in  a  good  position.  This  argument  came 
down  by  tradition  with  the  institution.  The  city  council  of  Nuremberg  stated, 
as  a  reason  for  establi-hing  a  lupanar,  that  the  church  allowed  harlots  in 
or<lcr  to  prevent  greater  evils.    .    .    .    Such  houses  were  maintained  without 


THE    UNITED    STATKS 


141 


secrecy  or  shame.  Queen  Joanna  of  Xaple'^  maile  ortlinances  for  a  lupanar 
at  Avignon,  in  \M7.  when  it  was  the  papal  residence  Generally  the  house 
\v;>s  rented  to  a  "host"  under  stipulations  as  to  the  food,  dress,  and  treatment 
of  the  inmates,  and  regulations  as  to  order,  gambling,  etc.  The  inmates,  like 
the  public  executioners,  were  required  to  wear  a  distinctive  dress.  Frequent- 
ers did  not  need  to  practise  secrecy.  The  houses  were  free  to  persons  of 
rank,  and  were  especially  prepared  by  the  city  when  it  had  to  entertain  great 
I'crsons.  Women  who  were  natives  of  the  city  were  not  admitted.  This  is 
ihe  only  feature  which  is  not  entirely  cynical  and  shameless.  In  1501  a  rich 
cituen  of  Frankfurt-am-Main  bequcithed  to  the  city  a  sum  of  money  with 
which  to  build  a  large  house  into  which  all  the  great  number  of  harlots  could 
he  collected,  for  the  number  increased  greatly.  They  appeared  at  all  great 
concourses  of  men,  and  were  sent  out  to  the  Hansa  stations.  In  fact,  the 
.leople  of  the  time  accepted  certain  social  phenomena  as  "natural"  and  inevi- 
table, and  they  made  their  arrangements  accordingly,  uninterfered  with  by 
"moral  sense."    .     .     . 

All  the  authorities  agree  that  the  thing  which  put  an  end  to  the  city 
lupanars  was  syphilis.  It  was  not  due  to  any  mora!  or  religious  revolt,  although 
tliere  had  been  individuals  who  had  criticized  the  institution  of  harlots,  and 
some  pious  persons  baa  founded  convents,  in  the  thirteenth  and  fourteenth 
centuries,  for  rei^entant  harlots.  Protestants  and  Cathdics  tried,  to  some 
extent,  to  throw  the  blame  of  the  lupanars  on  each  other.  Luther  urged  the 
abolition  of  them  in  1520.  They  reached  their  greatest  development  in  the 
fifteenth  century.' 

With  a  few  names  clianged,  this  would  sound  strangely  like 
an  argument  for  the  dispensary  system  to  one  who  regards  the 
drinking  of  alcohol  as  wrong  in  itself. 

On  the  other  hand,  those  who  do  not  regard  drinking  as  in 
itself  undesirable,  but  object  only  to  excessive  drinking  or 
drunkenness,  have  a  better  argument  for  the  dispensary  svstem. 
Tiiey  may.  with  justice,  contend  that  the  tendency  of  those  who 
sell  anything  for  a  profit  is  to  push  the  sale,  and  use  the  arts  of 
the  salesman  and  the  advertiser  to  persuade  people  to  buy  more 
than  they  otherwise  would. 

In  some  cases,  to  be  sure,  it  is  desirable  that  the  s.-le  of  an 
article  should  be  pushed  and  that  many  individuals  should  be 
IKTSuaded  to  buy  more  than  they  would  buy  without  the  persua- 
sion of  the  e.xpcrt  salesman  and  advertiser.  In  such  cases,  com- 
petitive selling  works  to  the  advantage  of  the  buyer  as  well  as 

'Vrom  FoUjays  by  William  G.  Sumner,  Ginn  &  Company.  Boston,  1907. 
bcctions  582  and  58J,  pages  529-531.    See  also  pages  256,  370  and  533-559. 


fi 


14J 


UJVKKNMKNT    COMUOl.    OF    THK    I.inlDK    lUSINESS 


r4 


the  seller.  But  in  the  case  of  intoxicating  liquor,  even  tli(ui.i,'li 
one  believes  that  a  small  (luantity  's  good  for  the  buyer,  no 
one  will  deny  that  there  are  many  who  buy  and  consume  too 
much.  Competitive  selling  must  be  reckoned  as  one  of  the 
factors  which  increase  the  sales  of  into.xicating  beverages,  and 
tlierefore  it  must  be  reckoned  as  one  of  the  factors  in  the  pro- 
duction of  drunkenness.  To  that  extent,  these  facts  would 
argue  in  favor  of  some  method  of  dispensing  liquors  which 
would  eliminate  the  profit  making  motive  or  any  other  motive 
which  would  spur  manufacturers  and  dealers  to  great  efficiency 
in  their  work. 

On  the  other  hand,  it  may  be  argued  that  it  the  consumption 
of  moderate  quantities  of  alcoholic  li(iuor  is  beneficial,  then  it 
would  be  a  good  thing  if  abstainers  could  be  p^Tsnadcd  to  drink 
niotlerate  (juaniities.  Some  motive  ouglit  therefore  to  be  found 
whi  !  would  push  the  business  of  selling  li(|Uor  to  those  who 
drink  too  little.  Missionary  zeal  could  scarcely  be  depended 
upon  to  put  the  necessary  energy  into  the  business.  Probably 
nothing  could  do  this  so  effectively,  that  is.  probably  nothing 
would  so  stimulate  the  needed  efficiency  as  tlie  desire  to  prosper 
in  the  business  of  manufacturing  and  silling  drink.  This  argues 
against  the  dispensary  system  and  in  favor  of  competitive  selling. 

In  attempting  to  balance  the  two  arguments,  we  need  to  con- 
sider whether  the  good  which  would  come  to  the  nondrinkers 
by  inducing  them  to  drink  moderate  (juantities  would  more  than 
balance  tlie  harm  done  to  certain  moderate  drinkers  by  inducing 
them  to  drink  immoderate  (juantities.  Stated  otherwise  the 
([uestion  becomes,  do  the  nondrinkers  suffer  more  harm  from 
drinking  too  little  than  the  hard  drinkers  suffer  from  drinking 
tun  much?'  If  so.  the  sale  of  drink  to  the  nondrinkers  ought  to 
lie  pushed,  even  though,  by  so  doing,  certain  moderate  drinkers 
are  transformed  into  immoderate  drinkers.  If  not,  the  sale 
•  lught  to  be  restricted,  or  at  least,  tlie  business  of  selling  ought  iv  a 
to  become  too  efficieni,  lest  the  liarm  dfme  by  making  moderate 
drinkers  into  drunkards  should  be  greater  than  that  done  by 
failing  to  sell  to  teetotalers  as  much  as  they  need. 


t\ 


THE    I'MTED    STATES 


143 


The  argument  for  the  dispensary  system  is  rather  obviously 
based  u()i>n  the  fnHowinK  assumptions: 

1.   Moderate  drinkinj^  is  either  harmless  or  beneficial. 
1.   Immoderate  drinking  is  harmful. 

3.  Larfje  numbers  of  men  drink  so  immoderately  as  to  do 
harm  to  themselves  and  to  society. 

4.  The  harm  which  results  from  the  hard  drinking  of  those 
who  drink  to  excess  is  greater  than  that  which  results  from  the 
abstemiousness  of  those  who  abstain  or  drink  very  little. 

The  salient  parts  of  this  argument  are  the  observed  fact  that 
much  drinking  is  carried  to  such  excess  as  to  make  it  harmful, 
and  the  assumption  that  this  harm  is  not  compensated  by  any 
benefit  which  m.ight  come  to  abstainers  if  they  could  be  intluced 
by  expert  salesmanship  or  clever  advertising  to  become  moderate 
drinkers.  There  is  thus  believed  to  be  a  net  loss  to  societv 
through  the  high  pressure  selling  ui  alcoholic  drinks  as  tliat 
business  is  now  carried  on.  This  argument  has  proved  fairlv 
convincing  to  all  the  princi[)al  warring  countries  of  Europe 
since  the  war  began.  The  harmfulness  of  drunkenness  has  been 
accentuated  in  a  time  when  any  loss  in  the  efficiency  of  its  man 
power  may  result  in  disaster  to  the  nation.  No  evidence  lias 
been  presented  to  show  any  accentuated  loss  through  too  much 
sobriety.  In  European  countries  these  considerations  have  led 
to  measures  for  controlling  the  drink  trade,  the  purpose  being 
mainly  to  reduce  the  amount  of  excessive  drinking  and  of 
drunkenness  on  the  one  hand,  and  to  conserve  a  certain  amount 
of  food  on  the  other.  In  the  United  States  and  Canada,  how- 
ever, the  tendency  has  been  to  give  a  new  impetus  to  the  pro- 
hibition movement  which  has  already  been  spreading  verv 
rapidly. 

The  difference  in  the  attitude  of  the  people  toward  drink  on 
the  two  sides  of  the  Atlantic  is  somewhat  significant.  The 
tendency  in  the  old  world  is  to  look  upon  alcohol  as  either  harm- 
less or  !)eneficial  when  taken  in  small  quantities  and  to  condemn 
only  the  excessive  use  of  it.  The  tendency  of  the  majority  on 
this  side  of  the  Atlantic  is  to  look  upon  alcohol  with  a  kind  of 


i 


) 


1'  '1^ ' 


St  ^^ 


-) 


144         COVEUNMKNT    C'(1NTI;<)L    OF    TMK    I.inl  (JU    lUSINKSS 

ahliorrcnce.  This  ablidrrcncc  is  api)arcnlly  not  based  updii  any 
l)tlicf  that  t.'vt.n  the  minutest  (jiiantitics  of  alcohol  are  necessarily 
harmful,  and  that  even  the  most  moderate  drinker  is  therefore 
doin;^  himself  irremediable  harm.  It  is  rather  based  upon  the 
observation  that,  in  a  lar^e  way,  alcohol  does  great  social  harm. 
There  is  therefore  little  inclination  to  inquire  precisely  how 
much  alcohol  can  be  taken  without  harm  to  the  taker.  The 
observed  fact  seems  to  be  that  comparatively  few  people  are 
capable  of  making  that  calculation,  or,  having  made  it,  to  stop 
at  tlie  right  point.  In  fact,  it  seems  to  be  observed  that  as  a 
drinker  approaches  that  point,  he  gradually  li»es  his  pcnver  of 
making  nice,  critical  judgments,  and  is  very  likely  to  go  beyond 
the  proper  limit.  Having  once  ])assed  that  limit,  he  becomes 
further  incapacitated  for  se!f-reslr;unt,  etc. 

This  presents  an  interesting  problem  in  the  psychology  of 
social  control.  Can  drunkenness,  which  every  reasonable  person 
desires  to  see  reduced,  he  more  effectively  controlled  by  recog- 
nizing the  propriety  of  moderate  drinking  while  discountenanc- 
ing heavy  drinking  and  punisliing  tlrunkeimess.  or  by  discounte- 
nancing all  drinking  whatsoevr  and  penalizing  all  matuifactur- 
ing  and  selling  of  intoxicants?  Something  may  be  said  on  both 
sides,  but  the  weight  of  public  o[)i:iion  in  North  America  is 
growing  more  .and  more  in  favor  of  the  latter  policy. 

In  the  actual  practice  of  soci.d  control,  both  methods  are  and 
always  have  been  used  toward  various  practices  which  result  in 
Social  harm.  Nothing  is  wrong,  of  course,  except  that  which 
can  be  shown  to  do  positive  injury  to  society  or  the  nation.  In 
some  cases,  social  condemnation  is  limited  to  tliose  excesses 
which  can  be  shown  to  be  socially  harmful;  in  others,  social 
condemnation  is  directed  against  every  act  which  tends,  in  the 
large,  to  produce  social  harm,  even  though  in  many  individual 
cases  the  individual  act  could  not  possibly  be  shown  to  have 
resulted  in  any  direct  harm.  If  the  effect  of  the  individual  act 
is  to  break  down  the  morale  of  the  community,  to  make  the 
pefiple  tolerant  of  acts  which  tend  to  be  carried  to  excess  and 
which,  if  carried  to  excess,  result  in  harm,  then  the  community 


THE    UN-ITEI)    STATES 


145 


must,  for  its  own  protection,  ashunie  an  aiisti-re  and  intolerant 
attitude. 

The  case  of  sexual  immorality  will  serve  as  an  illustration. 
It  would  in  many  cases  be  difficult  or  imp<issible  to  prove  that 
any  direct  social  harm  iiad  resulted.     But  there  are  two  large 
and  outstandin;,'  facts  which  must  always  be  borne  in  mind. 
First,  there  is  a  powerful  instinct  tending  to  drive  jK-ople  to 
excess  in  this  direction.     Second,  when  carried  to  excess,  great 
social  harm  results.     In  the  interest  of  .social  control  it  is  neces- 
sary that  this  powerful  instinct  he  held  in  check  bv  an  tcjually 
powerful  motive.     That  motive  is  the  fear  of  social  condemna- 
tion.     If    society   becomes   tolerant,   and   social   condemnation 
grows  weak,  tliere  will  be  i;     motive  sufficient  to  counteract  the 
power  of  the  sexual   instinct.     That  is  the  only  sound  reason 
why  we  never  discuss  the  distinction  between  a  moderate  and 
an  excessive  amount  of  sexual  promiscuity,  nor  trv  to  deci  le  at 
what  p(Mnt  it  becomes  excessive.     We  are  all  taught,  on  the  con- 
trary, to  view  witii  abhorrence  any  departure  whatever   from 
tiie  strictest  monogamy.    Needless  to  say,  this  emotional  abhor- 
rence IS  not  a  rational  process,  though  there  is  a  good  reason 
for  Its  existence.     If  we  did  not  cultivate  this  emotional  abhor- 
rence, but  tried  instead  to  view  every  case  in  a  coldly  rational 
manner,  there  is  not  much  doubt  that  society's  control  over  the 
situation  would  be  much  less  effective  than  it  is  today.     There 
is  no  reasoning  with  an  appetite.     It  can  only  be  controlled  by 
some  kind  of  an  emotional  abhorrence. 

The  appetite  for  alcohol  is  by  no  means  so  powerfnl,  so  uni- 
versal or  .so  natural  as  that  for  sexual  gratification,  therefore 
there  is  not  a  complete  analogy  between  the  drink  question  and 
the  sex  question.  There  is,  however,  a  partial  analogy.  One 
may  repeat  with  respect  to  drink  the  tuo  propositi.ms  upon 
which  the  policy  of  sex  control  is  based.  First,  there  is  a  power- 
ful appetite  which,  if  not  counteracted,  leads  vast  numbers  of 
people  to  drink  to  excess.  Second,  when  men  drink  to  excess, 
great  social  harm  results. 

The  first  of  these  propositions,  while  indisputable,  can  not  be 


146         OOVEKNMF.NT    CONTHOl.    OF    TIIK    I.IQI  DM     lUSINKSS 


'X 


w 


n-jR-atcd  with  the  same  emphasis  as  would  ho  justified  in  the 
case  iif  tlie  sexual  instinct,  fur  the  reasuns  stated  ahove.  The 
second  proixisition,  however,  can  he  matle  (|uite  as  eni()hatic  in 
the  case  of  drink  as  in  the  case  of  sex.  I-'xccssive  drinking  is 
(|uite  as  harmful  to  society  as  excessive  sexual  indulfjence,  though 
the  motive  promptinjj  to  excess  is  less  jjowerful  as  well  as  less 
universal  in  the  case  of  drink.  There  is  not,  therefore,  so  strong 
a  reason  in  the  interest  of  social  control  for  attaching  moral 
turpitude  to  moderate  drinking  as  tiiere  is  to  moderate  promis- 
cuity. 

There  is,  however,  a  ratlier  strong  reason.  This  may  he 
brought  out  hy  another  comparison.  Excessive  indulgence  in 
laughing  gas  would,  if  it  were  generally  practised,  prol)aI)ly  he  as 
harmful  socially  as  excessive  indulgence  in  alcohol,  or  as  exces- 
sive promiscuity.  If  there  were  a  |)owerful  tendency  leading  vast 
numhers  of  |)eople  to  this  kind  of  excess,  there  would  he  need 
of  a  powerful  engine  of  social  control.  It  is  not  too  much  to 
expect  that  a  kind  <if  emotional  abhorrence  woulil  develop  toward 
any  indidgence  whatever  in  laughing  gas.  The  more  powerful 
the  ten<Iency  toward  excess,  the  more  |>owerful,  uncompr(nnis- 
ing,  and  intolerant  the  opposing  tendency  would  h.ive  to  he  if 
societv  would  save  itself  from  destruction.  If  there  were  only 
a  mild  tendency  toward  excessive  use  of  laughing  gas,  society 
would  prohahly  not  concern  itself  very  much  about  it.  It  would 
not  he  necessary  that  it  shoukl. 

The  (|uestion  as  to  whether  our  system  of  social  control  over 
dnuikenness  should  take  the  extreme  form  of  regariling  all 
drinking  with  moral  abhorrence,  or  the  conservative  form  of 
looking  upon  it  with  indulgence  except  when  and  where  it  he- 
came  nf)ticcahly  harmful,  must  de(>end,  therefore,  upon  the 
strength  of  the  tendency  toward  excess. 

The  observed  fact  seems  to  be  that  the  tendency  toward  exces- 
sive drinking  is  much  stronger  in  America  than  in  Europe. 
Whether  this  is  because  of  the  more  intense  nature  of  Americans, 
due  to  their  more  stimulating  climate,  or  because  of  the  inferior 
quality  of  the  licjuor,  or  because  of  the  larger  incomes  of  the 


THE    INITKI)    STATES 


147 


Americans  which  enable  them  to  buy  stronger  liquors  or  mild 
luiuors  in  larger  (|u,intities.  or  !)ecause  of  all  these  tactors  com- 
bined, may  be  oinn  to  doubt.  But  there  can  be  iin  iloubt  that 
this  tendency  toward  excessive  drinking  ims  tended  to  jiroduce 
its  own  antidote  in  the  form  of  a  positive  and  uncompromising 
liostility  toward  drink  in  all  its  forms. 

This  attitude  has  been  particularly  strong  among  those  classes 
which  always  must  dominate  fhe  social  and  political  life  of  any 
progressive  country.  An  aristocratic  class  is  always  and  of 
necessity  a  tlecaying  class  unless  invigorated  by  new  blood  from 
below.  This  new  blood  from  below  is  likely  to  carry  its  own 
ideals  with  it.  Therefore  a  purely  aristocratic  class  can  gener- 
ally be  ignored  as  a  maker  of  jHjrmanent  ideals.  Proletarians 
who  drink  heavily  are  likely  always  to  remain  proletarians  or 
to  sink  into  the  class  of  dependents.  In  a  really  progressive  and 
democratic  country  the  great  middle  class  wiiich  increases  in 
numbers,  wealth  ami  education  is  pretty  certain  to  dommate 
the  {K)litics  and  the  social  life  of  tiie  country.  This  class  grows 
partly  by  its  own  power  to  i)rosi)er  and  to  multiply  and  partly 
because  of  recruits  from  below  due  to  the  prosperity  and  growth 
in  numbers  of  the  more  industri(;'.is,  intelligent,  sober  and  pro- 
gressive of  the  wage  workers. 

In  a  country  where  the  ix;o])le  show  such  tendencies  to  excess 
as  in  America,  the  people  tend  in  the  long  run  to  divide  them- 
selves into  two  main  groups — tiie  noiulrinkers  and  the  hard 
drinkers.  The  moderate  drinkers  form  a  decreasing  group. 
The  hard  drinkers  can.  in  the  long  nm,  be  ignored  as  makers 
of  iniblic  opinion.  If  wealthy,  they  soon  degenerate.  If  poor, 
they  remain  poor  and  tend  to  grow  poorer.  Those  who  rise  in 
the  scale  of  prosjxjrity  and  education  are  those  who  are  most 
.securely  fortified  against  destructive  vices  of  all  kinds.  The 
most  secure  defense  against  a  powerful  and  destructive  api)etite 
or  passion  is  an  emotional  abhorrence  of  it.  They  who  have 
developed  this  emotional  abhorrence  of  drink  tend  in  the  long 
run  to  be  more  sober  than  they  who  try  to  reason  about  it  coldly, 
just  as  surely  as  they  who  develop  an  emotional  abhorrence  of 


i] 


t. 


1 1 


148 


r,C)\  KKNMF.NT    CONTUdl,    OK    Till'.    lliiiOi;     lilSINKSS 


'*», 


undiastitv  tiiiil.  m  tlic  li'ii;,'  run,  to  tie  mori'  rlia>lc  tli.ui  tlu-v  who 
rc.i^c'ii  ;ili"iu  it  III  a  |jiir<.Iy  cnld  lil Kd  iiiaiiiit.'r. 

The  unconiproiuisitiK'  attitiulc  toward  dritik  is  rcllcctrd  in  tlu- 
varifius  proliibitory  laws.  Tlicse  arc  merely  attempts  to  put  into 
statutory  form  the  emotional  abhorrence  felt  l)y  a  class  which 
is  steadily  growinjj  n  jxiwer  ;md  influence.  F.ven  before  the 
w.-.r  h.id  ^'iveii  a  new  impetus  to  the  prohibition  movement,  it  had 
become  by  far  the  most  democratic  and  pro^jressive  movement  in 
American  political  and  social  life.  No  other  reform  had  ^h,>wn 
such  jjrowth  in  rhe  number  of  its  supporters  or  spread  so  rapiilly. 
Moreover,  it  had  spreavi,  in  the  main,  without  the  avowed  sup- 
I)ort  of  a  [Miwerful  political  party,  and  what  is  more  imixirtant, 
it  had  spread  almrist  entirely  throufjh  the  efTorts  of  those  who 
had  noihinp  to  (jain  from  its  success  or  to  lose  from  its  failure. 
To  fail  to  grasp  the  significance  of  this  large  fact  is  to  fail  to 
understand  even  the  first  principles  of  the  prohibition  movement. 

Seventy-five  years  of  temperance  agitation  in  this  country 
have  tendeil  to  produce  that  emotion.il  abhorrence  of  alcohol 
which  is  now  beginning  to  bear  fruit  in  ])rohibitory  la"'S.  The 
tem[)erance  movement  liere  has  never  been  a  scientific  movement 
in  a  narrow  and  technical  sense.  Neither  has  the  wiirfare 
against  any  vice.  It  can  not  be  t<iO  often  ixtinteu  out  that  there 
mav  be  an  excellent  scientific  reason  for  the  existence  of  an 
emotion,  though  the  emotion  itself  is  not  a  scientific  attitude. 
Love  and  patriotism  are  not  scientific  attitudes,  though  there  are 
the  best  of  scientific  reasons  for  their  existence.  An  emotional 
abhorrence  f)f  something  which  does  great  social  injury  is  no 
more  scientific  than  love  or  patriotism,  but  it  has  just  as  good 
scientific  reasons  for  its  existence  as  they  have. 

Kightlv  or  wrongly,  the  chief  efforts  of  temperance  reformers 
in  this  Country,  whose  methods  have  always  resembled  those  of 
the  religious  evangelists,  have  been  to  create  a  widespread,  emo- 
tional abhorrence  <if  alcohol  in  all  its  forms.  Prohibition  is  the 
logical  outcome  of  the  state  of  mind  created  by  this  long  period 
of  strenuous  warfare  .igainst  the  evils  of  drunkenness.  In  this 
respect  tlie  American  idea  of  temperance  reform  is  seen  to  be 


TllF.    INITED    STATES 


140 


in  harmony  with,  if  not  a  part  of,  t\.in^o!;wil  I  iiristi.inity.  So 
far  as  its  attitude  toward  moral  pro|)Iciii ,  is  co  ui-rnod  Christian- 
ity is  nothini,'  if  not  an  cmotiona!  i.-tcrest  in  that  which  is 
deemed  to  he  fr,„„i  ^iid  an  emotional  hostility  toward  tiiat  which 
is  deemed  to  he  had.  To  fail  to  understand  that  is  to  fail  to 
understand  not  only  temiK-rance  reform  in  America,  hut  Christi- 
anity itself  as  it  has  developed  in  file  I'mted  States  and  Canada 
where,  more  than  anywhere  else,  it  has  l)ecome  an  ajrency  for 
the  control  of  ethical  conduct. 

Much  has  heen  written  to  show  how  difTicuIt  it  is  to  enforce 
prohihitory  laws.  If  one  sets  ah.nit  it.  one  can  f^nd  numerous 
instances  of  violation.  lUit  pn.liihitnry  law-  do  not  suffer  hy 
comparison  with  any  otlier  laws  for  the  suppression  of  vice  or 
crime.  There  is  no  prohihition  State  in  winch  the  prohihitory 
law  is  not  hetter  enforced  than  laws  ajrainst  prostitution  in  the 
hest  of  tlie  mmproliihition  St.ites. 

To  ar^iie  that  prohihitory  laws  can  not  he  ahsojutely  enforced 
is  to  show  a  comi)!ete  inahility  to  ^aasp  tiie  fmulamen'tals  of  the 
prohlem.  If  a  prohiljitory  law  were  not  verv  difticult  to  enforce 
there  would  not  he  tiie  slif,'htest  reas<,n  for  havinj,-  a  proliihitury 
law.  If  it  were  not  difTicuIt  to  enforce  a  law  atjainst  drink,  it 
would  argue  that  there  was  no  very  strong  desire  to  drink 
liquor.  If  there  were  no  very  strong  desire  to  drink  Ii(|uor,  it 
would  not  he  worth  while  liaving  a  law  to  prevent  drinking, 
however  harmful  it  might  he  to  those  who  saw  fit  to  drink. 

For  example,  it  is  douhtle.ss  as  harmful  to  take  laugliing  gas 
in  excess  as  alcohol  in  excess.  The  same  mav  he  said  of  many 
other  suh.Uances.  But  if  no  one  cares  to  take  it  to  excess,  it 
would  he  rather  silly  to  have  a  law  to  prc^hihit  it.  At  the  same 
time,  if  such  a  law  were  enacted,  it  would  he  casilv  enforced  he- 
cause  no  one  would  have  any  motive  for  hreaking  it. 

Another  illustration,  at  the  opiH>site  extreme,  is  found  in  the 
case  of  prostitution.  Here  there  is  a  p<nverful  m.^tive  leading 
people  to  hreak  the  law.  That  is  what  make,  tiie  law  s,)  difH- 
cult  to  enforce.  Rut,  at  the  same  time,  tliat  powerful  motive 
makes  It  ahsolutely  essential  that  there  should  he  something  to 


I  tl 


tl 


IM) 


(.ii\  KKNMKNT    CONTKOl.    Ol'        IIK    I.IOI  OU    TltSINI'.SS 


**1» 


f. 


^S. 


■^l 


r< 


■*  1'.'. 


I'l'iiiiliT.irt  it  and  lidlil  it  in  coiitml,  otluTwisc  it  would  drive 
nun  111  liariiiful  excesses. 

\\  lierevir  ymi  have  two  conditinns,  which  will  he  named 
shortly,  you  will  have:  first,  the  necessity  for  lej,'al  control; 
second.  );reat  difficulty  in  effectinj,'  that  control.  These  condi- 
tions are:  first,  a  |)owerful  motive  leading  to  excess;  second, 
harmful  results  followinjj  that  excess.  In  the  case  of  prostitu- 
tion we  have  lM)th  these  conditions.  In  the  case  of  laujjhinp  gas 
we  have  only  one.  Name  any  case  whatsoever  in  which  only 
one  of  these  conditions  exists,  and  you  have  named  a  case  which 
calls  for  no  le^al  control  or  repression.  If  only  the  seconil  con- 
dition exists,  le^al  control  is  easy  hut  unnecessary.  Name  any 
case  whatsoever  in  which  hoth  these  conditions  exist  and  you 
have  named  a  c;ise  whicli  calls  for  legal  control  and  repression, 
and  in  which  that  lejjal  control  and  repression  will  he  verv  diffi- 
cult to  enforce.  In  fact,  comolete  enforcement  will  be  absolutely 
impossible. 

The  only  question,  therefore,  is.  Does  the  drinking;  of  alcohol 
form  a  case  in  which  botli  conditions  exist,  or  is  it  a  case  in 
which  only  one  exists?  That  is  to  say,  is  it  a  case  in  which 
tliere  is  a  p<i\verfid  ;iiid  widesiireiid  desire  which  liads  to  excess, 
and  is  that  excess  harmful,  or  is  it  a  case  in  which  there  is  no 
such  powerful  and  widespread  desire,  or,  if  it  exists,  is  it  h.-^rm- 
less?  If  it  is  a  case  of  the  former  class,  the  powerful  and  wide- 
sjjread  desire  will  lead  larjje  numbers  to  drin!c  to  excess,  and 
tiie  results  of  that  excess  will  do  f;;reat  social  harm.  If  it  is  a 
case  where  there  is  no  particular  desire  which  leads  any  con- 
siderable number  to  excess,  even  though  such  excess  were  theo- 
retically harmful,  there  would  be  no  j^reat  harm  done  by  leaving 
nun  to  tliiinselves;  or  if  there  were  a  powerful  and  widespread 
desire  leading  to  excess,  but  such  excesses-  did  no  particular 
harm,  again  there  would  be  no  particular  reason  for  legal  con- 
trol or  rc])ression. 

It  will  scarcely  be  denied  by  any  reasonable  person  that  the 
driik  tpiestion  comes  under  the  first  class  of  cases.  It  luuiues- 
tionably  forms  a  case  w'^ere  there  is  a  ptnverful  and  widesjiread 


Till-;     IMllli     Sr.MKS 


ISl 


.les.re  which  Ica.ls  iarRc  nu.nhors  to  excess,  and  the  results  „f  that 
excess  are  exceedingly  harmful.  If  there  is  any  one  who  d.-ul.ts 
either  of  these  statenunts.  he  is  welco.ne  to  his  views  I„k  is 
too  preciou.   to  waste  u[)on  him. 

Kvery  one  of  the  warring  countries  has  been  forced  to  reco.-- 
n.ze  both  facts  and  to  undertake  some  kind  of  leK'al  control  o.- 
rq.ress.on  as  a  measure  of  war  efficiency.  The  results  of  i„- 
ethcency  are  probably  ..r,  truly  present  in  time  of  [,eace  as  u,  time 
of  war.  but  thev  are  not  so  acutely  felt,  or  likely  to  produce 
disaster  in  .such  spectacular  fonrs. 

For  at  Ie..st  forty  years  before  this  war,  the  tendency  in 
Anienca  had  been  toward  prohibition  rather  than  control  as 
a  nu-tho,!  of  .solving  the  liquor  pn.blem.  What  is  more  import- 
ant for  our  present  purpose  is  tht  fact  that,  having  that  ex- 
perience behind  us.  it  was  inevitable  that  our  policy  toward 
drink  in  war  time  should  likewise  be  one  of  orohibition  rather 
than  of  control. 


Pi 


■ill 


CHAPTER    VII 

The  Repression  of  Drunkenness 

llie  arj^tinunts  used  in  support  of  war  time  prohibition  in 
this  country  were  identical  with  tliose  used  in  Knjjland  in  favor 
of  h(iuor  control.  They  are.  first,  the  inefficiency  which  results 
from  drunk>.;..iess  on  the  pan  of  those  upon  whom  great  re- 
sponsibility rests,  and  second,  the  waste  of  food  materials  in- 
volved in  the  manufacture  of  alcoholic  beverages.  So  far  as 
the  evil  effects  of  dnmkenness  uptm  soldiers  and  sailors  were 
concerned,  there  \\as  not  nnich  room  for  [xipular  discussion, 
nor  much  need  of  it.  The  liif,'lur  administrative  officials  acted 
promptly,  issuin.s;  orders  forljiddin^  the  selling  or  giving  of 
liquors  to  men  in  uniform.  Most  of  the  public  discussion  and 
popular  agitation  -Te  directed  against  the  waste  of  f(  1 
materials. 

Congress  promptlv  passed  a  •  ther  sweeping  prohibition  of 
the  keeping  or  the  sale  of  liquor  ..y  private  agencies  in  any  mili- 
tary cami)  and  specifically  forbade  the  s.ale  of  intoxicating  Ii(iuor, 
including  beer,  ale  and  wine,  to  any  officer  or  soldier  in  uniform. 
This  prohibition  was  embodied  as  Section  12  of  the  act  approved 
May  18,  1017.  conmionly  called  the  Selective  Draft  Act.  but 
otficiallv  entilkil  "An  .\ci  to  .Authorize  the  President  to  Increase 
Teniix.rarilv  tlie  Military  K'-tabli-hment  of  the  United  States." 

Section  12  reads  as  follows: 

That  thf  PrcsidcTit  nf  the  I'niteil  States,  as  commander  in  chief  of  the 
army,  is  anthi.rizcil  to  make  siuh  remilatioiis  RoverninR  the  pr(ihi))itioii  of 
alcohnhc  1i(iiior.<  in  or  near  mihtary  camps  and  to  the  officers  and  enlisted 
men  of  the  army  as  he  may  from  time  to  time  deem  necessary  or  advisable: 
I'roHdi-il.  That  no  person,  corporation,  partnership,  or  association  shall  s>'ll, 
supply,  or  have  in  his  or  its  possession,  any  intoxicating  or  spirituous  In;  •  . 
at  any  military  station,  caiuoiunint.  camp,  fort,  post,  officers'  or  ei.'  .'d 
men's  cluh,  which  is  being  used  at  the  time  for  military  purposes  undc  Uns 

15J 


THE    UNITED    STATES 


153 


act.  but  the  Secretary  of  War  may  make  rcgula'ioiis  permitting  the  sale  and 
use  of  intoxicating  liquors  for  medicinal  purpuses.  It  shall  Ik;  unlawfiil  to 
sell  any  intoxicating  liquor,  including  beer,  ale,  or  wine,  to  any  officer  or 
member  of  the  military  forces  while  in  uniform,  except  as  herein  prov:  led. 
Any  person,  corporation,  partnership,  or  association  violating  the  pnivisu.ns 
of  this  section  of  the  regulations  made  thereunder  shall,  unless  otherwise 
punishable  under  the  Articles  of  War,  be  deemed  guilty  of  a  misdemeanor 
and  be  punished  by  a  fine  of  not  more  than  $1,000  or  imprisonment  for  not 
more  than  twelve  months,  or  both.i 


In  the  above  act  it  was  provided  that  the  President,  as  com- 
mander in  chief  of  the  army,  niifrht  make  such  rejjiilations  as 
he  saw  fit  for  the  prohil)ition  of  alcoholic  li(|uors  in  or  war 
military  camps.  On  July  25  the  foil,  wing  regulation,  among 
others,  was  issued  by  the  President  and  the  Secretary  of  War 
under  authority  of  the  above  act: 

Xo  person,  whether  acting  individually  or  as  an  officer,  mcmlicr,  agent, 
representative,  or  employe  of  an  in(li\i(lual,  shall,  in  or  within  five  miles 
of  any  military  camp,  except  as  hereinafter  provided,  sell  or  barter  <Iirectly 
or  indirectly,  either  alone  or  with  any  other  article,  any  alcoholic  liquor, 
including  beer,  ale,  or  wine,  to  any  person,  or  give  or  serve  any  such  alcoholic 
li(lU(ir  to  any  person,  except  that  this  prohibition  against  serving  or  giving 
alcoholic  liquor  shall  not  apply  to  the  serving  of  wines  or  liquors  in  a  private 
home  to  memliers  of  the  family  or  to  /'i'pki  fide  guests  therein  other  than 
officers  or  members  of  the  military  forces;  and  no  person,  whether  acting 
individually  or  as  a  member,  officer,  agent,  representative,  or  employe  of 
any  corporation,  partnership,  or  association,  or  as  an  agent,  representative, 
or  an  employe  of  an  individual,  shall  send,  ship,  transmit,  or  transport  in 
any  manner,  or  cause  to  be  shipped,  transmitted,  or  transported  in  any 
manner,  any  alcoholic  liquor,  including  beer,  ale,  or  wine,  to  any  place 
within  five  miles  of  any  military  camp,  except  for  use  in  his  home,  as  herein- 
before authorized;  Proindcd.  That  where  the  existing  limits  of  an  incor- 
porated city  or  town  are  within  five  miles  of  a  military  camp,  the  prohibition 
upon  the  sale,  barter,  gift,  service,  sending,  shipment,  transmission,  or  trans- 
portation of  alcoholic  liquors  imposed  by  this  regulation  shall  not  apply  to 
any  part  of  the  incorporated  city  or  town  distant  more  than  one-half  mile 
from  said  camp.' 

On  September   17,   1917,  the  President  issued  an  executive 
order  extending  the  above  regulations  to  navy  yards,  naval  sta- 

"From  Statutes  of  the  United   States  of  America,  passeo  at   the   First 
Session  of  the  Sixty-fifth  Congress,  1917,  page  82. 
-  From  P.ulletin  No.  45,  War  Department. 


I 


154 


(.()\  KIJNMI.N  1     (ONTKDl.    (ir    TlIK    I.IOTOK     niSINKSS 


*^:^' 


I'. 


tions.  naval  or  marine  camps  or  barracks  where  military  forces 
are  under  training,  as  follows: 

It  is  lierrhy  rliricted  that  the  term  "military  camps"  empluycd  in  the  regu- 
lations estahlislved  by  the  President  and  puhlished  in  Paragraph  1.  Section 
III.  lUilletiii  X,,  45,  War  Department,  dated  July  2J,  I'Jl".  shall' lie  con- 
strued to  refer,  in  addition  to  the  cantonments  and  camps  specilierl  in  I'.ulle- 
tin  No.  48.  War  Department,  dated  .August  22.  l')17.  to  any  navy  yard,  naval 
station,  naval  or  marine  camp  or  barracks,  and  any  other  cstalili>hment  under 
the  jurisdiction  of  the  Navy  Department,  where  militarv  forces  are  under 
"■^'"'"K-  WooDKow  Wilson. 


S®S 


I'.ven  iH'fnre  tlii'  war.  Secretary  Daniels  liad  forbidden  tlie 
use  of  alcoholic  drinks  on  ve>sels  of  the  I'nited  States  Xavy. 
He  was  protni>t  in  iirjiing  laws  f,,r  the  protection  of  navy  yards, 
naval  stations  and  oiiicr  ])laces  under  the  jurisdiction  of  the 
Xavy  Department.  In  the  Off'uia!  Bnllctin  for  .May  _'_',  1917, 
the  following  statement  was  given  out: 

The  Secretary  of  the  N'avy.  having  noted  those  sections  in  the  recent  law 
to  provide  for  the  temporary  increase  in  the  military  estahlishinent  that  relate 
to  the  restriction  of  the  sale  of  intoxicating  liquor  to  members  of  the  miliiary 
forces  while  m  uniform,  has  <lecided  that  similar  provisions  for  the  welfare 
of  the  naval  personnel  would  be  desirable.  Since  April  6th  last  there  have 
heen  about  4ll,(KK)  new  enlistments  in  the  navy,  mostly  young  men  who  are 
at  an  age  when  it  is  m..st  important  that  they  be  trained  and  cared  for  under 
conditions  that  will  not  conduce  to  the  formation  of  bad  habits,  esiiecially 
those  arising  out  of  the  use  of  intoxicating  liqucjr. 

Believing,  therefore,  that  the  well  being  of  these  numer,.us  recruits,  as 
well  as  that  of  the  older  men.  would  be  promoted  and  that  legislation  similar 
to  ,,t  for  the  ar'..y  would  be  most  salutary  and  beneficial  for  the  efficiency 
of  the  navy  generally,  the  Secretary  of  the  Xavy  has  addressed  a  letter  to 
the  Speaker  of  the  House  of  Representatives,  of  which  copies  were  furnished 
the  Xaval  AfTairs  Committees  of  me  House  and  Senate,  urging  favorable 
consuleration  of  this  question  and  submitting  a  draft  of  proposed  legislation 


Draft  of  Prof'osed  Law 
/?.■  i(  enacl>-d  by  the  Scat.-  and  House  of  Refn-scnlalives  of  the  United 
States  of  Amenea.  in  Congress  assembled.  That  the  President  of  the  I'nited 
States,  as  c.-.mmandcr  in  chief  of  the  navy.  be.  and  he  is  hereby,  authorized 
to  make  such  regulations  governing  the  prohibition  of  alcoholic  liqu.irs  in 
or  near  every  place  under  the  jurisdiction  and  control  of  the  Navy  Depart- 
ment and  to  the  officers  and  enlisted  men  of  the  navy  and  marine  corps  and 
oti.er  forces  of  the  United  .States  serving  with  the  navy  or  under  the  juris- 
dul„.n  and  control  ,,|   the   Xavy   Department,  as  he  may   from  time  to  time 


i      . 


THK    IMTKi,    STATIiS 


155 


intoxicatiPK  or  spirituous  Iic,uors.  a    a„;      a         ar"l    na  V  :  ',"'"'""";  ""' 

war   college,   a,nmuni„o„.   or  otlc-r   .1     „       ,  .  mal     1  :        "''  ''"^""•■' 

stati,.,,    ™.  ■    ■  "uiir    (H|...t,    li.ispiial,    lalK)ratorv,    c.xnenmeiit 

CLrctao   ot   the   ^a^y  may  make  reKiilations   permitliriK  the  sale    purchase 

-eer,  ale.  or  ^  ^No'^ iXe^'^^^I.r^riir:!::^ '^e    ':f  l""^ 
Z  m'h  e,.ept  as  may  he  au.hor.e.l  hy  re«:,la.i,::3  d  ^  m^rar  Seu; 

lie  <leemc,l  guilty  of  a  misdemeanor  and  he  punished  l,v  -   fi  /  ^' 

...at,  $,,000  or  imprisoumettt  for  not  more    '.rr^Se  m,:,.£:,:^:;r^" 

On  .fttne  9.  1017.  ti.e  OffUl,,!  nuUctin  published  the  following: 

The   Xavy   Department  authorizes   the   following- 

Secretary  Oaniels  has  sent  the  followmg  telegram  to  all  naval  stations- 
1  he  Department   requested  oniin.m    Ai^.m..,    <■  i         '■'*'"  ^"nons . 

.ion  13,  Selectne  Draft  Ac,  ap         e",   M       18      QlT      "l  ■'■  "  "''^  •'^"■ 
provisions,  applies  to  navil  fonVs     \  ,  '  "'"'^'"'"K  Prohibition 

.ows:  "This  oepartm:r^s'Xm,si  :;::;;•  :;::s;:i;e^'::^r"  ^"^  '^"- 

..on  as  covering  the  entire  military  estahlishmen    of     ,e  U  i.H  St^s  ";;rr 
.ng  the  navy  and  n,arine  corps"     Please  give  this  matter  wid,     I,  :..^""- 
(I-ollowed  by  prohibition  provisions.     See  above,  page  Hl^''^- 

The  matter  was  settle,!,  however,  by  a  special  act  of  Con- 

t.on  12  o  the  Select.ve  Draft  Act.  to  the  navy  as  well  as  to  the 
a  .  y.  Th.s  act  ,s  entitled.  "An  Act  to  Pro„,ote  the  Fftlcien  v 
of  th  ■  Un.tetl  States  Navy."  and  reads  as  follows:  >  ' 

Stat  "JaT'  "'""•■'•■'•'"'•  «'"'  ^''"'--  "/  '^^fr.snUaUr.s  nf  >,,,  mu -H 
of  Sections  12  and  U  of  the  S         it^^^  "■"— "-^ 

the  word  "army"  shall  extend  t  7^^  t;,-  H,"'  '''?>„'«•,  "^'^^ 
shall  include  "naval";  "Articles  of  War"  sh^n  ■  ?i  .'. ,  ""'""^  "military" 
ernmeiit  of  the   N-nv"-  the  words  "m Tt  '""     ■^""^''  ^"^  "'^  ^="- 

post,  officers-  or  enliLd  t;  uh  '"  n  S^^,;:;;' p',::':''""-''-  ^^P'   ^-'- 

,  -,       „  .^tction  I.,  and    camp,  station,  fort. 

ii>ee  .'statutes  of  the  U.  S  A     Si»tv  fif.i,  n 

sj.  ji.  .•,.,  .M.xt>-tiftli  Congress,  p.ige  3P.V 


I 

I, 


156 


i;i)\i:i;nmi:nt  (c.ntrol  vi    iiu;  i.igi  du   in  sinkss 


\1 


post,  cam,.nnH-m.  trainiiiK  „r  ni,,l,ilizatinn  place."  in  Socli,.,,  |,i.  shall  iiu-liidu 
Midi  [.laces  under  na\al  jurisdiction  as  the  President  niav  ,irescril.c,  and 
the  pnuers  therein  conferred  upon  the  Secretary  of  War  with  regard  to  the 
military  service  are  hereliy  conferred  upon  the  Secretary  of  the  Navy  with 
regard  to  the  naval  serMcc. 

The  Secretary  of  the  Xa\  v  liad  meanwiiile  heen  active  in 
controlling  the  situation  so  far  as  his  authority  would  permit 
him  to  go,  and  ah-o  in  urging  uix.n  the  State  authorities  in  those 
States  where  navy  yards  and  naval  stations  were  located  the 
necessity  of  cleaning  up  the  neighborhoods  surrounding  such 
stati(.ns.  The  Official  Bulletin  for  June  20  and  Julv  14,  1917, 
contains  the  following  statements: 

Secretary  of  tlie  Xa\y  Daniels  has  authorized  the  followiuR  statement: 
-HavinK  received  iiumen.us  complaints  of  immoral  conditions  at  the  city 
of  Xewport.  K.  I.,  fn.ni  citizens  of  Newport  and  from  the  parents  of  many 
of  the  youuK  men  n..w  j;athcred  there  in  the  great  Naval  Training  Station 
and  the  encampment  of  the  Naval  Reserve,  I  deemed  it  ;iroper  to  call  the 
matter  to  the  attention  c^f  the  Governor  of  Rhode  Island. 

"In  reply  the  Governor  returned  to  this  Department  a  report  from  the 
Mayor  of  Newport,  representing  that  there  was  no  unusual  degree  of  immor- 
ality in  that  city,  denying  the  truth  ;uul  justice  of  the  complaints,  and  gen- 
erally minimizing  the  situation.  Thcreuixin  this  Oepartment,  through  its 
own  agents  an,I  with  the  assistance  of  the  Department  of  Uist.cc.  instituted 
an  investigation  at  first  hand,  .\s  a  result  of  that  investigation  1  have  just 
sent  to  the  Governor  of  Rhode  Island  a  list  in  detail  of  some  of  the  most 
notorious  houses  of  prostitution  and  open  gamhling  houses  in  Newport 
also  calling  his  attention  to  the  extent  and  methods  of  illegal  sale  of  liquor 
to  sailers  and  naval  reserve  recruits,  and  informing  him  that  the  Department 
IS  ready  to  furnish  him  with  further  specific  evidence  if  the  State's  own 
otficcrs  do  not  produce  it."  I  June  20,  1917.] 

Secretary  Daniels  has  made  the  following  statement: 

"I  have  written  the  Governor  of  Pennsylvania  a  letter  concerning  condi- 
tions  111  Philadelphia  near  the  navy  yard,  similar  to  the  one  I  v.rote  the 
Governor  ot  Rhode  Island  some  time  ago  in  regard  to  Newp.irt  I  have 
sent  him  a  list  of  quite  a  numher  of  places  which  are  a  menace  to  the  vo-ing 
men  in  the  navy  and  marine  corps,  giving  him  the  names  of  saloons  gamhlin? 
houses,  and  houses  of  ill-fame,  giving  streets  and  numhers  I  have  asked 
him  to  use  his  authority  to  have  these  places  clos-'d  and  to  improve  condi- 
tions there. 

"Experts  have  made  an  investigation  at  Philadelphia,  and  I  have  sent 
their  report  to  the  Governor." 

Avked  whether  he  w,,uld  take  the  same  action  at  Philadelphia  that  he  did 
at  Newport,  where  guards  were  stationed  in   front  of  the  houses,  the  Sec- 


THK    rxiTKI)    STAT!;« 


157 


mry  sa„l  l,c  would  n„t  deci.le  what  action   he  wo„l,l  take  un.,1  after  he 

.u    "r       T    "";""7,'^--l-«'^  -d  'earned  what  the  local  au    or  , 
V    uld  do,  as  he  l^heved  the  State  authorities  would  cooperate  and  close  tie 
places  which  arc  causing  complaint 

:;-i«.""j;r  •",j;;/,?%'?7";"""  °'  "•••'"■  '>- '""  ---. «;  s 

AcliiiB  on  Ihc  aulhority  given  by  the  Sekctive  Draft  Act  as 
amondeu.  ,1,.  Secretary  of  the  Navy  established  drv  2„„es  in 

tlie  following  order; 

above';:«:"l5i).°'  "'  '"'""^  °"''  ^^'-   ^""--'^   ^'^y   '«■    '^'7    (see 
ahove™;e"ssr   ''  """'''   '"  '''   "'   =""'™^''''   ^^'^"-^  6'    ^''^    (see 

hohc   liquor    incUu  ,ng  beer,  ale.  and  wine,  either  alone  or  with  any  other 
article,  shall  not,  directly  or  indirectly,   be  sold,  bartered,  given    se  red    o 
knowingly  delivered  ;.y  one  person  to  another  within  any    uch  zone   or  sent 

we  .  transmined    ca.ried,  or  transported  to  any  pllce  w.tMn  an.    Tu 
"ne,  /  r.Mrf.rf  That  this  regulation  shall  not  apply  to  the  giving  or  serving 
of  such   liquor  ,11  a  private  home  to  members  of  the   famllv  or  60  , , T/ 
^ests    other  than  officers  or  members  of  the  naval     orceT    P.;,^ 'LS 

States  for  medical  purposes,  or  ,0  the  sending,  shipping   transmting   «  rv 

(-)  Until  otherwise  ordereu  the  places  under  naval  jurisdiction  referred 
to  above  are  specified  as  follows:  jun-uiciion  referred 

Naval  Academy,  Annapolis,  Md. 
-Naval  Training  Station,  Newport,  R.  I. 
Naval  Training  Station,  Norfolk.  Va. 
Naval  Training  Station.  Great  Lake:,.  Ill 
Naval  Traiu.ng  Station,  Naval  Operating  Base.  Hampton  Roads,  Va 


■ 


158 


r.O\TI<N.MF\T    COyTKOI.    (Il-      Mil;    l.lntdR    lUSINKSS 


'K 


wf^- 


TraimiiK  Camp,  N'avy  Yard.  Man-   l^lalll^,  Cal. 

Marine  Ilarraiks,  Paris  Island.  S.  C. 

Marine  I'.arracks,  Quantico,  \'a. 

(3  I  Outsiile  ot  said  zones,  alcoholic  liquor,  incliidiiiK  hccr.  ale.  and  wine, 
either  alone  or  with  any  other  article,  shall  not  diri-ctly  or  indirectly,  he 
sold,  bartered,  given,  served,  ..r  knowinRly  delivered  to  any  officer  or  member 
of  the  naval  forces,  except  when  administered  for  medical  purposes  bv  or 
under  the  direction  of  a  regtilarly  licensed  physician  or  mcilical  officer  of 
the  United  States:  Prc-.-idcd.  That  this  rcRulation  shall  nm  apply  to  the 
giving  or  serving  of  such  liquor  in  a  private  home  to  members  of  the  family 
or  bona  fide  guests. 

(4)  N'othing  contained  in  these  regulations  shall  be  construed  to  prohibit 
or  restrict  the  procuring  or  use  of  wine  by  any  religious  c<inRregation  or 
church  for  sacramental  purposes  in  the  usual  religious  exercises  of  its 
denomination. 

(.M  The  words  "station,  cantonment,  camp,  fort,  post,  officers'  or  en- 
listed men's  club"  as  used  in  the  proviso  to  Section  12,  above  quoted,  shall 
include  all  places  under  naval  jurisdiction.  The  use  of  intoxicating  liquor 
in  such  places,  by  or  under  the  direction  of  licensed  physicians  or  medical 
office. s  of  the  United  States,  for  tncdicinal  purposes,  is  authorized  by  the 
Secretary  of  the  Navy 

(6)  All  prior  violations  of  former  regulations  and  all  penalties  incurred 
thereunder  shall  be  prosecuted  and  enforced  in  the  same  manner  and  with 
the  same  effect  as  if  these  superseding  regulations  bad  not  been  established. 

I'l  This  order  shall  take  effect  Saturday.  16  March.  1918.  at  4  o'clock 
post-meridian,' 

JosEPHfs  Daniei.s. 


The  army  ami  the  navy  liavinj,;  liecn  put  un  prccisclv  tin-  same 
basis  so  far  as  war  pmliihition  was  cnnccrnfd,  the  following 
rulings  apply  to  lunh  alike: 

The  War  Departnent  authorizes  the  following: 

Purveyors  of  "soft  drinks"  will  he  permitted  to  set  up  their  establish- 
ments within  the  two-mile  "dry"  zone  which  will  surround  the  16  new  army 
cantonments.  Although  the  War  Department  has  issued  no  rules  as  regards 
granting  concession  privileges  to  dealers  in  ice  cream  and  soda  water,  it  is 
uniUrstood  that  the  regulations  now  in  force  with  respect  to  army  posts 
will  apply. 

There  will  be  an  effort  on  the  part  of  the  War  Department  to  make  the 
dry  zone  as  "wet"  as  possible,  within  the  limits  of  absolute  temperance; 
which  means  that  would-be  concessionaires  may  make  application  to  the 
cantonment  c^mimanders.  and.  if  they  are  able  to  prove  that  they  will  sell 
only  "soft  drinks"  «ill  l,e  permitted  to  set  up  their  tents  and  go  ahead.= 

»  Fr.-m  Officwl  Bulletin,  March  13,  1918 
"^  Ibid..  June  20,  1917. 


THE    LMHCl)    SIATES 


159 


The  Offlnal  nullcin  ,s  puhlislMng  a  a,.r.>.  o{  M  lessons  for  the  benefit 

.mg  .ar,...|    „  „„•  r.KU   «av.      |LesM,n   No.   10  con.a.ns  the   follow  ng) 
Congress  has  prun.lcl  that  "it  shall  l^  unlawful  to  sell  anv  intoxu-.„n„ 

K,uor,  ,nclu.l,ng  heer.  ale.  or  w,„e  to  an,  officer  or  tner^h^r         ZZ^ 
forces   wlMle  n,  uniform,"  an  exception  he.ng  made   in  a  case   of    ,.,u         ' 
4u.re,l   for  n,e,|,ca!   purposes.      Under  authority  of  the  same  Ic      i     la     J 

een  ruled  that  alcohol.c  li4uors  shall  not  be'sold  w!thi ,  v  mt.  s  f  a,: 
n nh.ary  can,,,  an  exception  bcng  made  ,n  case  there  ,s  an  Tt  rp  raul 
city  or  town  w,th,n  that  limit.     It  has  further  been  provided  that  '  M  '  Le 

^.roi'i",::!,''""^"  -^  "'"-■  '-'^'^'-  -  '^^^'  i-'-  -,  rr^ 

miles  ot  any  military  camp    .  ,,   nruhilnip,!  "     \ii  .1 

^s..tio..  are  in  the  interest   of  ...lllXL:::^  "HZnuTjt 

Tl^y  will   help  to  make  every  soldier  more  efficicii.   and   hettc,    able   ,0  gfve 
a  good  account  of  himself.     (August  _'J,  19];.]  ^ 

The  Secretary  of  War  has  issued  the  following  statement 
Considerable  confusion   has   arisen   concerning   the   .,„r„   ..         1 
of  the  new  regulations  under  Section  .2  J  Z'i^::^.  ^    '^  ^r^rihe 
Mle^gift.  and  serving  of  li.,uor  ,0  soldiers  in   uniform  ^ 

Ihe  purpose  of  these  regulations  is  to  facilitate  the  detecV.n   -,„^ 

If  this  exception  is  abused  I  shall  not,  of  course    hpsit;,t*  .^ 
to  the  President  the  further  extension  of  the  regulations  ■  "'°"""""' 

The  Official  Bulletin  for  February  26.  1918.  contains  a  .tate- 
rnent  whtch  says  in  substattce  that  the  rttle  against  giving,  selling 
(etc.)    hquor  to  soldiers  will  not  be  relaxed,  according  to  an 

^Official  Bulletin,  February  2i.  1918. 


I' 


lA 


160         (i(n  KKNMKNT    C'1JNTR(1L    OF    TIIK    LIQUOR    lUSINESS 


i'i 


li»| 


M 


I  ; 


^•'^ 


announcement  by  R.  B.  Fosilick,  Chairman  of  the  War  Depart- 
ment Commission  on  Traininjj  Camp  Activities;  also  that  tlie 
definition  of  tliv  term  "militarv  camp"  has  been  enlarged  to 
etnl)race  training'  cam[)s  lor  the  Ordnance  and  Quartermaster's 
Departments  and  medical  otTicers  throughout  the  United  States, 
Hawaii  anil   I'drio  Rico. 

The  Official  lUillctm  <<i  March  9,  I'US,  contains  the  folluwing: 

The  Secretary  of  the  Navy  has  signed  a  general  order,  publishing  regu- 
lations to  continue  during  the  present  emergency,  under  Section  IJ  of  the 
Selective  Draft  Act.  as  made  applicable  to  the  naval  service.  These  regula- 
tions govern  tlie  prohibition  of  alcoholic  liquors  in  or  near  certain  places 
under  naval  jurisdiction  and  to  the  olficers  and  enlisteil  nu-n  of  the  navy. 
They  are  similar  t  hose  issued  by  the  War  Department  in  Bulletin  No.  5 
of  I'ebruary  8,  1018,  except  that  the  width  of  the  "dry  zone"  surrounding 
the  designated  naval  stations  is  uniformly  five  miles,  irrespective  of  whether 
or  not  an  incorporated  city  or  town  lies  within  such  distance. 

Until  otherwise  ordered,  the  following  stations  are  affected  by  these  regu- 
lations : 

Naval  Academy,  .Annapolis,  Md. 

Na^al  Training  Station,  Newport,  R.  I. 

Naval  Training  Station,  Norfolk,  Va. 

Naval  Training  Station,  Great  Lakes,  111. 

Naval  Training  Station.  Naval  Operating  Base,   Hampton  Roads,  Va. 

Training  Camp,  Navy  Yard,  Mare  Island,  Cal. 

Marine  Barracks.  Paris  I>land,  S.  C. 

Marine  Barracks,  Quantico,  \  a. 


Within  the  five-mile  zones  about  these  places  alcoholic  liquors,  including 
beer,  ale.  and  wine,  shall  not,  either  directly  or  indirectly,  be  sold,  given, 
served,  or  knowingly  delivered  by  one  person  to  another,  except  that  this 
shall  not  apply  to  the  giving  or  serving  of  such  liquor  in  a  private  home  to 
members  of  the  family  or  bnna  fide  guests  other  than  officers  or  members 
of  the  navnl  forces,  or  to  the  sale  or  gift  of  such  liquor  by  registered  phar- 
niaci>ts  to  licensed  physicians  or  medical  officers  of  the  United  States  for 
medical  purposes,  or  to  the  a<lministering  of  such  liquor  by  them  for  this 
purpose.  The  shipment  of  liquor  to  any  place  within  these  zones  is  also 
pr. ilul.ted,  except  to  a  private  home  or  to  registered  pharmacists,  licensed 
physicians,  or  medical  officers   for  medical  purposes. 

Outside  of  these  zones  li(|Uor  shall  not,  directly  or  indirectly,  be  sold, 
given,  served,  or  knowingly  delivered  to  any  officer  or  member  of  the  naval 
forces,  except  for  medical  purposes  by  a  licensed  physician  or  medical  officer, 
with  the  provisions  that  this  reguLition  shall  not  apply  to  the  giving  or  serv- 
ing of  such  liquor  in  a  private  home  to  members  of  the  family  or  bomi  fide 
guests.     The  Secretary  of  the  Navy  hopes,  however,  that  the  public  at  large 


rUK    r.NITEl)    STATES 


161 


will  retrain   fr.ni   otTcriiiK  tn  mcmljcrs  of  the  naval    forces,   particularly   the 
wmnKer  element,  any  intoxicating  liquor,  even  in  private  homes  oiitsuie  of 


the  "dry  zones." 


The  article  roo  <>n  to  stntc  that  the  Secretary  of  tiie  Navy 
also  issued  a  stateinent  saying  that  these  refjuiations  had  l)een 
made  necessary  hy  tlie  exi>tence  of  iinhearable  evils  near  the 
areas  above  mentioned.  Mr.  Daniels  received  many  letters  from 
ofikers  in  charjje  of  training  stations,  calling  attention  to  the 
need  of  some  such  regulations. 

On  December  26,  1917.  the  following  resolution  vias  passed  at  a  meeting 
of  the  Newiiort  War  Camp  Community  Service  Committee  ,.n  Training  Camp 
Activities,  the  members  of  which  were  elected  ,it  a  town  meeting  liy  citizens. 

"Whereas  the  pre.stnce  of  liquor  in  Newport  might  be  a  source  of  disaster 
to  vital  government  interests,  and 

"Whereas  the  President  of  the  United  S.ates  has  the  authority  to  prohibit 
intoxicating  liquor  being  sold  within  a  specified  distance  of  naval  or  milita.v 
posts :  He  it 

-Rcsohvd.  by  the  Newport  War  Camp  Service  Committee  on  Training 
Camp  .\ctivities.  that  the  President  of  the  United  Slates  be  requested  to 
direct  that  no  liquor  be  sold  in  Newport,  and  that,  through  the  control  of 
the  source  of  the  supply  of  lujuor  by  internal  revenue  officials,  no  intoxicat- 
ing liquor  be  allowed  to  be  sent  to  Newport." 

On  December  17.  1917,  the  inspector  of  ordnance  in  charge  at  the  torpedo 
station  at  Newport  w  rote  : 

"It  is  believed  that  every  danger  against  explosion  has  been  guarded 
agamst  except  one.  This  one  is  the  presence  of  many  saloons  in  the  city 
of  Newport.  Liquor  is  brought  to  the  torpedo  station  in  spite  of  efforts  to 
keep  it  out.  Workmen  have  been  discharged  and  men  have  been  court- 
martialed  and  punished.  The  Newp<irt  saloons  may  pretend  to  refuse  to 
sell  liquor  to  the  men  in  uniform.  There  are  bottle  gangs  in  the  streets 
that  do  a  thriving  business.  Men  of  the  bottle  gang  are  occasionally  arrested 
and  given  a  few  weeks  in  jail,  but  this  does  not  prevent  nor  deter  others 
from  selling  liquor.  I  believe  that  the  ease  with  which  liquor  can  be  obtained 
by  men  in  uniform  is  a  source  of  constant  and  ever  present  danger  to  the 
torpedo  station,  to  the  vital  needs  of  the  military  situation,  and  actually  in- 
Mting  a  disaster  that  would  be  inconceivably  terrible.  It  would  paralyze 
ilie  torpedo  station  and  the  ships  of  the  navy  yet  to  be  commissioned." 

.Again,  on  December  27,  1917,  the  same  officer  wrote: 
"The  safety  of  this  station,  and  the  tremendous  quantities  of  torpedoes 
lield  here  for  issue  imperatively  demand  that  every  factor  of  danger  should 


<:<i\  1  RN M  KN  1     (  ON  TKOI.    OF     III!"     l.lyldK     lUSlMSS 


'^ 


Ir  riminril      At  tlic  iirivtiit  time  ivi  factor  can  lie  coiisidcrcd  ir-h1i(;i1i1i-      The 
l'r<->ence  nf  li(|unr  in  .\<»|Mirt  is  a  Miurci  <jf  dainjer." 


IK 


'ft    ■ 


-_-^^^. 


■vl 


I'nder  ilate  "i  I'tdimary  19,  1918,  twn  reports  have  ht-en  received  hy  the 
I.  o!n^n^•>loll  on  Irainiiij!  I.  amp  Actmliis  fmm  ihcir  rtprf.t-iit.iiiMs  ,it  N't«- 
purt.  fn.in  which  the  full<iwiriK  is  cuiotcd 

"liootleKKiiiK  iu'c<ls  attcniioii.  I'liiiormcd  men  experience  htllc  dilliciilty 
in  ol>t.iiniiiK  all  the  Iii|iior  tiny  want,  jiidKinn  tr.nn  ohscrvutiom  m.idc  and 
Ir^iin  adniisuKPiis  of  the  'hoys'  themselves,  live  actual  liootlc«>;inK  instances 
were  seen  in  which  three  saloons  and  mie  urocerv  and  Iniiior  store  tiyiired. 
.Ml  sailors  who  were  interviewed  admitted  that  booze  is  easily  ob- 
tained " 

'rik---i'  iiuasun.-^  li;i\itiK  ln-iii  taki-ii  I'l'r  the  pri'Vciitinn  of 
(Jriinkc-tiiHss  in  ilic  .iriiiy,  tliu  next  j^Tcat  prolilini  was  that  of 
pri-'x  lilting'  it  aiiinnj,'  the  civih.'iii  |Hi[)iilati(iii.  Ne.irlv  cvcrvone 
liad  ri-cnijiiizc'il  tlu-  wisduiii  <it  tliesi-  laws  as  apphvcl  '.(i  nun  in 
niiht;iry  and  navil  service.  .\t  any  rate,  they  seem  to  h.ive  lieen 
accepted  !iy  the  ;,'ener,il  jinhhc  witli  very  httle  opp. .>ition  or  even 
ihscussioii.  Hill  when  the  [nihhc  it>elf  is  e.\[)ected  to  remain 
sober,  it  is  anotlier  (Hiesti'in.  Most  of  iis  are  I'nritans  in  our 
ideas  as  to  wliat  is  fjood  for  otlier  people,  hiit  as  for  ourselves 
we  prefer  to  tlo  as  we  please'  willioiu  Iniidrance  from  the 
^'overnnieiit. 

It  cm  not  he  very  much  worse  for  a  soldier  or  a  s;iilor  to  Ik' 
drunk  than  lor  an  officer  of  j,'o\  ernment,  a  mana),'er  or  a  worker 
in  a  munition  plant,  a  coal  mine,  or  a  shipyard.  Ourinj^  the 
eo.il  shortajje  in  the  winter  of  1917-18,  the  fuel  administrator 
for  the  city  of  l'hiladel|)hia  found  it  necessary  to  forhid  the 
sale  of  intoxicating  litjuor  to  the  drivers  of  coal  teams  tluring 
Working  hours.  This  is  merely  a  sample  of  tlie  value  of  sobriety 
auK^ng  tile  civilian  workers.  The  argument  that  these  men  have 
always  been  used  to  alcoholic  drink,  and  therefore  can  not  be 
exi>ecteil  to  get  along  without  it,  applies  e(|ua11y  well  to  soldiers 
and  sailors.  The  difference  seems  to  be  that  soldiers  and  sailors 
are  under  discipline  and  not  supposed  to  take  much  part  in 
politics.  'J'herefi're  tliey  accept,  perhaps  with  grumbling,  hut 
without  political  agitation,  sucli  laws  and  regulations  as  are 
placed  over  them.     Others  do  i     t. 


THK    LNITKI)    STATKS 


16.5 


Hcrr  .Ka....  w.  arc  ,n  contact  witl,  one  of  ,1,,  .lisa^Tcoal.lo 
but  outstatKhnK.  facts  of  our  social  I.fe.  nanulv.  that  tlu-  c-  v 
.n.'  ...  of  a  Krcat  war  is  as  nn.ch  of  a  .lenuKo^.c  as     f  ,"  "l" 

OUUU  t  K>   to  do.     h  was  rq,catc.lly  ufKccl  hv  nan  „,  all  sorts 

f  IK.>U..ns.tua  whatever  the  n,cri,s.>f  the  pr.,h.hi,.on,„: 
on    the  people   wo„l.l   n„t   stand   a;  ..h.u   if   prohibition   lere 

w   .  T      '    °^'^'"^'>^-'"'i"^'    -ajor.ties.    the    workin^n-e. 

uould  rebel  a,.tmst  the  n.ajor.ty  and  r.  fuse  to  work   thus  c    r^ 
Pimg  the  «overnnK.nt  n,  the  prosecution  of  the  wnr  ^ 

It  could   Ik.   shown,   however,    that   the  K-vernment    vus    d 

nnes       One  of  the  hnutm,.  factors  is  coal;  but  the  output  of 
CMl    U  .s  repeatedly  claime.l.  was  reduced  hv  the  tendency  o 
cnsulerable  nun,bers  to  «et  drunk  on  Sundav  and        he  un 

ai:^;cfu;7t:::rntT'"^^^"-''^-"^^ 

il..s  poor  opinion  of  the  .juality  and  the  lovaltv  of  working 
n^n  was  freely  expressed  by  n,en  in  hi,h  posu.on'in  U^     d^al 
and    State   governments,    as    well    -.s   bv    tl,..,r  '^-uerai 

1  „  1  ,•  "'     "^    tlieir   own   accrc-il  f.>rl 

[The  Senate  debated  over  the  Food  MiM  ;„  c  i 

tor  Lo,lKe  made  a  speech  in  opposition  I'V  ^""'  ^'  ''^''■'     ^'■^"^- 

proh.bit  the  manufactur  'e       T  e     ,        ^^-.'"'"^"'i^"-^  in  the  hill  ,o 

"ed.  he  said,  was  a  unite     pc  semmn'h.ef"'  '"  ^'"  '"  ''^  '""'''- 
t<=h,nd  th,s  war.     He  pointed  out  tlv  "'*'  '  ^'"'  '"'"'^■^  ^'^^^-^ 

du.  not  consider  heer  "1:7.,'^    a^dThl  "t^t:;"""  °'  '"^  "-"'' 
and  apKcr  to  stop  it  at  a  time  when  ,h/.       .  u  "'"""^  resentment 

ever  clamor  is   raised   no^'   sa.d   Se,.,      T-,""'^'  '"  ""  """''^-    "^^'hat- 


1(,4         l.DVKKNMKN  r    IDNVKDI.    OV     THE    1  lyrou     lUSINFSS 


4 


S 


1)C  loyal  itimiK'li  to  supixirt  tin-  gdvcrnnicnt  if  it  ititirfiTi'il  witli 
the  liciuor  business.  If  this  confidence,  on  the  one  hand,  anil 
fear  on  tlie  mher.  were  wtU  (grounded,  they  would  furni>h  a 
sound  argument  in  favor  of  letting  things  alone.  In  a  titiu-  of 
crisis  the  government  inu>t  always,  im fortunately.  i)lacato  '"e 
less  loyal  elements — those  who  are  thoroughl)  loyal  will  su,,,>'  .t 
the  government  anyway.  If  the  cunt'ulince  and  fear  expressed 
above  were  reversed,  that  is.  if  there  was  a  well  grounded  fear 
th.at  the  prdliihitiimists  woidd  refuse  'o  support  the  gdvernnu-iit 
unless  it  pr(ihil)ited  liquor,  and  a  well  ,.,rounded  confidence  that 
the  anti-pnihihitionists  would  support  the  government  anyway. 
the  alarmists  would  undoubtedly  have  said,  by  all  means  let  us 
have  prohibition  in  order  that  there  may  be  "a  united  public 
sentiment." 

Of  course,  if  it  were  a  question  of  distracting  public  atten- 
tion from  the  war  rather  than  «  f  dividing  public  sentiment  re- 
garding it,  the  case  would  be  different.  There  are  numerous 
humiliating  examples  of  reformers  wlio  are  busy  pestering  the 
President  and  O'ngress  over  reforms  which  have  nothing  to  do 
with  the  V  ^r,  but  which  the  agitators  hope  that  the  government 
will  adopt  merely  to  get  rid  of  tlie  nuisance  of  agitation.  As 
pointed  out  in  the  beginning  of  tiiis  monf>graph.  temperance  re- 
form has  beer  pressed  as  a  war  measure  not  at  all  by  those  who 
have  anything  personal  to  gain  fr(  m  it.  but  by  those  who  see  that 
the  conservation  of  man  power  and  fiod  materials  is  vital  to 
the  effective  prosecution  of  the  war.  In  f.ict,  the  measures  for 
the  elimination  of  drunkenness  and  the  conservation  of  food 
materials  have  been  enacted  mainly  by  those  who  have  never 
taken  anv  active  interest  in  temperance  reform  as  such. 

The  same  doui)ts  as  were  exjiressed  by  Senator  Lodge  as  to 
the  willingness  of  the  anti-prohibitionists  to  supp<irt  the  govern- 
ment in  the  event  of  prohibition,  were  expressed  by  Mr.  Samuel 
Gompers.  He  is  quoted  as  saying  in  the  Washington  Post  for 
December  17.  1917: 

A  larne  number  of  ,\mericans,  whether  natives  or  by  adoption,  drink 
liocr.  anil  in  some  instaiues  lit;ht  wines,  as  a  part  of  their  daily  meals.     Is 


THE     LNIIKl)     MATKS 


165 


prcjhihition  or  the  threat  of  prnhilijlidn  c.iUiiUieil  to  tran<iiiillize  and  win 
ihem  to  the  support  of  our  country  and  the  great  cause  in  which  we  are 
cnK:iKed— or  otherwise'  U  it  wise  to  hriuK  so  great  a  controversial  qu'stmn 
to  the  foreground  duiiiig  these  crucial  days  when  we  need  the  united  sup- 
port, in  spirit  and  action,  of  all  our  people? 


On  the  otliiT  liantl,  it  was  urged  tliat  many  States  and  parts 
lit  States  are  already  dry,  and  that  wtirke.s  in  these  drv  States 
and  districts  liad  shown  no  disposition  Xo  shirk  tlie  duties  of 
citizenship  because  of  the  (hfiiculty  of  securing  drink.  To  this 
it  was  replied,  first,  that  prohibition  is  not  very  well  enforced, 
and,  second,  that  the  prohibition  States  are  those  with  the  lowest 
l>ercentages  of  for.-ign  born  jxipulation.  Presumably  the  loyalty 
of  the  foreign  born  mav  not  be  ijuite  so  strong  as  that  of  the 
native  born,  and  their  attachinent  to  drink  may  be  a  little 
stronger.  Therefore  there  may  be  some  ground  f<ir  the  un- 
easiness lest  national  proiiibition,  which  would  undoubtedly  be 
enforced  more  effectively  than  local  prohibition,  and  which  would 
ajijily  to  our  large  cities  matle  up  largely  of  foreign  born  peoples 
who  have  not  yet  become  strongly  attached  to  our  country, 
might  provoke  resentment  and  even  hostility.  No  doubt  the 
pro-German  element  would  be  prompt  in  tr'<ing  advantage  of 
every  latent  discontent  of  this  kind. 

At  any  rate  the  question  resolves  itself  into  this:  Is  the  dan- 
ger of  loss  of  man  jMwer  through  the  disloyalty  of  the  would-be 
drinkers  under  prohibition  greater  than  that  of  the  loss  of 
man  power  through  drunkenness  in  the  absence  of  prohibition. 
So  far  as  the  army  and  navy  are  concerned,  the  authorities  evi- 
dently think  that  it  is  not.  They  fear  drunkenness  under  non- 
prohibition  in  the  army  camps,  navy  yards,  etc.,  more  than  they 
do  resentment  and  disloyalty  under  prohibition.  The  political 
leaders  of  the  civilian  population,  however,  do  not  all  seem  to 
have  the  same  confidence  in  the  loyalty  of  their  followers. 


t. 


Vi 


CHAPTER    VIII 
The  Conservation  of  Food  Materials 

At  the  time  of  oui  entrance  iip<'>n  the  conflict,  the  food  ques- 
tion liad  become  one  of  tlie  principal  questions  of  the  war.  The 
slogan,  "I'ood  Will  Win  tiie  War,"  was  sounded  almost  imme- 
diately. Tlie  unscrupulous  U-i)oat  campaign  was  the  cause  of  a 
threatened  food  slmrtajje  in  France  and  England,  and  at  the 
same  time  the  culmination  of  a  long  series  of  barbaric  acts 
which  were  driving  us  into  the  war.  Next  to  the  organization 
and  training  of  an  army,  the  most  stupendous  task  laid  upon  this 
country  was  that  of  supplying  food  to  those  »vith  whom  we  had 
taken  sides.  A  vigorous  campaign  for  the  conservation  of  food 
was  started  almost  immediately.  Though  officially  this  had 
nothing  to  do  with  war  time  prohibition,  it  did  not  take  long 
for  large  numbers  of  people  to  see  that  one  verv  impf)rtant 
source  of  waste  was  the  manufacture  of  potable  alcohol.  Even 
if  the  mass  of  the  people  had  been  slow  to  see  this  point,  they 
could  not  long  ignore  it  because  the  organized  temperance  forces 
of  the  country  began  actively  calling  attention  to  it. 

Unfortunately,  however,  there  were  at  first  no  authoritative 
statistics  published  as  to  the  e.xact  amounts  of  food  materials 
u.sed  in  the  liquor  industries.  The  reports  of  the  Commissioner 
of  Int'-rnal  Revenue  contained  the  figures  as  to  the  materials 
used  in  the  manufacture  of  distilled  spirits,  but  not  in  the  manu- 
facture of  malt  lifiuors.  \'arious  estimates  were  made,  however, 
but  they  did  not  all  agree. 

'1  lie  matter  was  sittled  finally  by  the  publication  of  authentic 
figures  in  the  Crop  Rejx)rt  of  the  United  States  Department  of 
Agriculture  for  May,  1917.    These  figures  were  taken  from  the 

166 


X' 


THE    UNITED    STATES 


167 


records  of  the  Commissioner  of  Internal  Revenue,  and  virtually 
closed  the  discussion.     The  table  follows: 


■li 


MATERIALS    USED    TO    MAKE    ALCOHOLIC    LIQUORS    IN    THE 

UNITED    STATES    DURING    THE    FISCAL    YEAR    ENDED 

JUNE   30,    1916 

(United  States  Internal  Revenue  figures) 


Material 


For  fcr- 

nicntf'i 
liquors.* 


For  distilled 


Malt  (expressed  in  terms  of  barley),  bushels  52,439,973  4,073,262 

Corn,  bushels  tl3,573,S21  32,069,542 

Rye,  bushels  §   3,116.612 

Oats,  bushels   §   9,«07 

Wheat,  bushels   §  3.373 

Barley,  bushels   §   148 


Total. 

56,513.235 

45.643.063 

3,116.612 

9.807 

3.373 

148 


Rice,   bushels   t  2,.!54.000 

Other  materials  reported,  in  busl-i-ls 72.355 


§ 2.354,(XH) 

68.822         141.177 


Total  grain,  included  above 


68.439,849    39,341,566  107,781.415 


Grape  sugar  or  maltose,  pounds 54,934,621     S 54.9.54.621 

Hops,  pounds  37,451.610       37.451.610 

Molasses,  gallons   §   152.142.232  152.142.232 

Glucose  or  sirup,  gallons  2.742.854    § 2,742.854 

Other  materials — 

In  gallons   19.112       19.112 

In  pounds   24./56.974       24,756,974 

*  Totals  for  materials  used  for  fermented  liquors  were  compiled  by  the 
Bureau  of  Crop  Estimates,  United  States  Department  of  Agriculture,  from 
unpublished  records  nf  the  Commissioner  of  Internal  Revenue. 

t  Includes  ccrcaline  and  grits. 

i  Rice,  reported  as  141,249,292  pounds.  Estimated  roughly  as  2.354.000 
bushels. 

§  Included,  if  any,  in  "Other  materials." 

Reducing  the  seven  principal  items  in  this  t.iMe  to  pounds  in 
order  to  get  a  common  denominator,  we  get  the  following 
quantities: 

Barley    56.513,235  bushels  X  48  =  2,712,635,280  pounds 

Corn   45,643,063  bushels   X   56  =  2,556,01 1.528  pounds 

Rye    3,116,612  bushels  X   56  =      174.530,272  pounds 

Rice  141.249.292  pounds 

Grape  sugar  or  maltose  54.934.621  pounds 

Molasses    152,142,23?  gallons   X   U  =  1,673,564.552  pounds 

Glucose  or  sirup 2,742,854  gallons   X   11  =       30,171.394  pounds 


Total  7,J4< 096,939  pounds 

The  question   was  rather   persistently  asked,   why   urge  our 
people  to  economize  in  food  as  a  patriotic  measure,  and  at  the 


Si 
HI 


168         C.OVF.RNMENT    COVTKOI.    OF    THK    LiyiOK    UlSINESS 


"\ 


§k 


same  time  allmv  this  larfje  item  of  waste  to  cfiiitinue?  It  was 
j)i>inted  out,  of  course,  that  this  was  only  a  small  fraction  of 
the  total  food  produced  in  the  country,  the  fjrain  used  beinj,' 
between  two  and  three  per  cent  if  our  total  j,'rain  crop.  On 
the  otl'er  hand,  the  point  was  made  that  no  sinj^le  item  of  wasted 
food  amounts  to  a  vefv  larjje  percentage  of  the  total  food  pro- 
duction of  the  country,  and  that  food  conservation  means  the 
elimination  of  all  these  itemr  of  waste,  even  though  each  one, 
taken  separately,  may  be  relatively  small. 

So  far  as  distilled  spirits  were  concerned,  there  was  little 
difference  of  opinion  among  thi  i  in  positions  of  high  respon- 
sibility. Opinion  was  ilivii!  as  to  the  best  policy  to  pursue 
with  respect  to  "malt  and  vinous  liquors."  Congress  promptly 
prcihibited  the  use  of  food  materials  for  the  manufacture  of 
distilled  spirits  for  beverage  purposes,  but  threw  upon  the  Presi- 
dent the  responsibility  of  deciding  what  to  do  with  the  question 
of  beer  and  wine.  In  an  act,  commonly  called  the  Food  Con- 
servation Act,  but  fifficially  entitled  "an  act  to  provide  further 
for  the  nr.tional  security  and  defense  by  encournging  the  pro- 
duciion,  conserving  the  supply,  and  controlling  i'l'j  distribution 
of  f<xid  products  and  fuel,"  approved  August  10,  1917,  it  wr.s 
provided  as  follows: 

Sectic.  1  15.  That  from  and  after  30  days  from  the  date  of  the  approval  of 
this  act  nr  foods,  fruits,  food  materials,  or  feeds  shall  be  used  in  the  produc- 
tion of  distilled  spirits  for  beverage  purposes ;  Provided,  That  under  such 
rules,  regulations,  -md  bonds  as  the  President  may  prescribe,  such  materials 
may  be  used  in  the  .  rodu'-tion  of  distilled  spirits  exclusively  for  other  than 
beverage  nurposes,  or  for  the  fortification  of  pui"  sweet  wines  as  defined  by 
the  act  entitled  "An  act  to  increase  the  revenue,  and  for  other  purposes," 
approved  September  8.  1916.  N -ir  shall  there  be  imported  into  the  United 
States  any  distilled  spirits.  Whenever  the  President  shall  find  that  limitation, 
regulation,  or  prohibitio,.  of  the  use  of  foods,  fruits,  food  materials,  or  feeds 
in  the  production  of  malt  or  vinous  liquors  for  beverage  purposes,  or  that 
reduction  of  the  alcoholic  content  of  any  such  malt  or  vinous  liquor,  is  essen- 
tial, in  order  to  assure  an  adequate  and  continuous  supply  of  food,  or  that  the 
national  security  and  defense  wii  be  subserved  thereby,  he  is  authorized, 
from  time  to  lime,  to  prescribe  and  give  public  notice  of  the  extent  of  the 
limitation,  regulatio...  prohibition,  or  reduction  so  necessitated.  Whenever 
such  notice  i  .ill  have  been  given  and  shall  remain  unrevoked  no  person 
shill,  after  a  reasonable  time  prescribed  in  suh  notice,  use  any  foods,  fruits. 


I,; 


^f' 


THE    UNITED    STATES 


169 


food  materials,  or  feeds  in  tlie  production  of  malt  or  vinous  liquors,  or  import 
any  such  liquors  except  under  license  issued  by  the  President  and  in  com- 
pliance with  rules  and  regulat.ons  determined  by  him  governmg  the  pro- 
duction and  importation  of  such  liquors  and  the  alcoholic  content  thereof. 
Any  person  who  wdfully  violates  the  provisions  of  this  section,  or  who  shall 
use  any  foods,  fruits,  food  materials,  or  feeds  in  the  production  of  malt 
or  vinous  liquors,  or  who  shall  import  any  such  liquors,  without  first  obtain- 
ing a  license  so  to  do  when  a  license  is  required  under  this  section,  shall  be 
punished  by  a  fine  not  exceeding  $5.(X10.  or  by  imprisonment  for  not  more 
than  two  years,  or  both;  Provided  fun-u-r.  That  nothing  in  this  section  shall 
be  construed  to  authorize  the  licensing  of  the  manufacture  of  vinous  or  malt 
liquors  in  any  State,  Territory,  or  the  District  of  Columbia,  or  any  civil  sub- 
division thereof,  where  the  manufacture  of  such  vinous  or  malt  liquor  is 
prohibited. 

Section  16.  That  the  President  is  authorized  and  directed  to  commandeer 
any  or  all  distilled  spirits  in  bond  or  in  stock  at  the  date  of  the  approval 
of  this  act  for  redistillation,  in  so  far  as  such  redistillation  may  be  necessary 
to  meet  the  requirements  of  the  government  in  the  manufacture  of  muni- 
tions and  other  military  and  hospital  supplies,  or  in  so  far  as  such  redistilla- 
tion would  dispense  with  the  necessity  of  utilizing  products  and  materials 
suitable  for  foods  and  feeds  in  the  future  manufacture  of  distilled  spirits 
for  the  purposes  herein  enumerated.  The  President  shall  determine  and  pav 
a  just  compensation  for  the  distilled  spirits  so  commandeered;  and  if  the 
compensation  so  determined  be  not  satisfactory  to  the  person  entitled  to 
receive  the  same  such  person  shall  be  paid  75  per  centum  of  the  amouit 
so  determined  by  the  President  and  shall  be  entitled  to  sue  the  United  States 
to  recover  sucli  further  sum  as,  added  to  said  75  per  centum,  will  make  up 
such  amount  as  will  be  just  compensation  for  such  spirits,  in  the  manner 
provided  by  Section  ZA,  Paragraph  20,  and  Sect'on  145  of  the  Judicial  Code.' 


Inasmuch  as  the  above  act  authorized  the  President  to  pro- 
hibit, restrict  or  regulate  the  manufacture  of  malt  and  vinous 
liquors,  pressure  was  immediately  brought  to  bear  upon  him  to 
exercise  this  authority  given  him  by  prohibiting  the  manufacture 
and  sale  of  these  liquors  also.  Pressure  was  also  exerted  In  the 
opposite  'irection.  On  the  8th  of  December  he  issued  a  procla- 
mation reducing  by  30  per  cent  the  quantity  of  food  materials 
used  in  the  manufacture  of  these  liquors,  and  reducing  the  alco- 
holic content  of  all  malt  liquors  except  ale  and  porter  to  2.75 
per  cent. 

The  following  is  a  copy  of  the  proclamation: 

'  From  Statutes  of  the  United  States  of  America,  passed  at  the  Firft  Ses- 
sion of  the  Sixty-fifth  Congress.  1917,  Chapter  53,  page  282. 


170 


(;(>\FI<NMI"V  r    <(i\TI<nl.    Ill-     IIIK 


KiroK    TUSINKSS 


I, 


I, 

'*: . 
M 


ILIMITIXG  AI.rOHdl-U:  CON'TnNT  uC  MM.T  l.IOrr)Rl 

By  lilt-  I'residciit  of  tli,-  r»tli-d  St,itt-^  ,<f  America 

A  PROCLAMATIuX 

\\  hfrcan,  un<lcr  and  liy  virtue  of  an  ait  of  Cnngress  ciU.tlcd  "An  act 
to  provide  further  for  the  national  security  and  defense  hy  encouraRing  the 
production,  conserving  the  supply,  and  controUinv,'  the  distribution  of  food 
products  and  fuel,"  approved  hy  the  President  on  August  10,  1917,  it  is  pro- 
vided in  Section  15.  among  other  things,  a'-  follows: 

"Whenever  the  Presivlent  shall  find  that  lirnit.Tion.  reRulation,  or  proii.'- 
l.ition  of  the  use  of  foods,  fruits,  food  materials,  or  feeds  in  the  production 
of  malt  or  vinous  liijuors  for  heveraue  purposes,  or  that  reduction  of  the 
alcoholic  content  of  any  such  malt  cr  vinous  liciuor,  is  e.'iscntial.  in  order  to 
assure  an  adcfiuate  and  continuous  supply  of  food,  or  that  the  national  secur- 
ity and  defense  will  he  suhserved  therein,  he  is  authorized,  from  time  to 
time,  to  prescribe  and  pive  public  notice  of  the  extent  of  the  limitation,  regu- 
lation, prohibition,  or  rciluction  .so  necessitated.  Whenever  sucli  notice  shall 
have  been  given  and  shall  remain  unrevoked,  no  person  shall  ifter  a  reason- 
able time  prescribed  in  such  notice,  use  any  for  ,1s.  fruits,  food  materials,  or 
feeds  in  the  production  of  malt  or  vinous  liquors,  or  import  any  such  liquors 
except  under  licen.=e  issued  by  the  Presiilent  ami  in  compliance  witi.  rules  and 
repulatifins  determined  by  him  governing  the  production  and  importation  oi' 
such  liquors  and  the  alcoholic  content  thereof;" 

Now.  therefore.  1.  Woodrow  Wilson.  Pri.idcnt  of  the  United  States  of 
.-\menca.  by  virtue  of  the  powers  confeirci'.  on  me  hy  said  act  of  Congress, 
do  hereby  find  and  determine  that  the  national  security  and  defense  \sill  he 
subserved  by  the  limit  tion  of  the  amount  of  foods,  fruits,  food  materials  and 
feeds  used  in  the  production  of  malt  liquor,  and  by  reduction  of  the  alcoholic 
content  of  malt  liquor  produced  in  the  I'nited  .States.  And  by  this  proclama- 
tion I  prescribe  anil  give  public  notiie  that  on  and  after  January  I.  1918.  the 
total  amount  of  foods,  fruits,  food  materials  and  feeds  used  by  any  person  in 
the  production  of  malt  liquor  shall  not  e.xceed  seventy  per  cent  (70'~(  )  of  the 
average  consumption  of  any  such  foods,  fruits,  food  materials,  or  feeds  in 
the  production  of  such  malt  li<|uor  by  such  person  during  the  period  from 
January  1,  1917.  to  January  1.  1918,  the  unit  of  tin-.e  to  be  fixed  by  regulation; 
and  that  on  and  after  Jaiuiar.  ',  1918.  no  malt  liijuor  except  ale  and  porter 
shall  be  produced  in  the  United  States  containing  more  than  two  and  three- 
quarters  per  cent  (2.75' >  )  of  alcohol  by  weight. 

No  person  shall,  after  January  1.  1918.  use  any  foods,  fruits,  food  mate- 
rials, or  feeds  in  the  production  of  malt  liquor,  unless  he  secures  a  license  so 
to  do,  to  be  issued  by  the  Commissioner  <if  Internal  Revenue,  and  complies 
with  rules  and  regtilations  to  be  hereafter  promulgated  governing  t!i  pro- 
duction of  such  li(iuor  and  the  alcoholic  content  thereof;  and  no  per.son  shall 
import  any  such  liquor  except  under  license  to  be  issued  by  the  Division  of 
Customs,  Treasury  Department,  and  in  compliance  with  any  rules  and  regu- 
lations governing  the  importation  of  such  liquors  which  may  be  promulgated. 


■\1 


THE    r.NITED    STAThS 


171 


In  Witness  Wiieheof,  I  have  hereunto  set  my  liaiul  and  caused  the  seal 
ol  the  liiited  States  to  be  affixed 

UiiiH-  ill  the  District  <•{  Gihitnliia.  this  8th  day  nf  December  in  the  year 
of  our  L<i:d  one  thous^'nd,  nine  hundred  and  sevent.'on  ai  '  of  the  Inde- 
pendence of  the  United  States  of  America  the  one  hundred  and  forty-second. 
[Seal]  Wooukuw  Wilson. 

By  the  President : 

KnnERT  ',ANsiNG,  Si\relary  of  Slate. 

Aside  from  ti;e  direct  re.strictioii  of  the  ompiit  of  beer,  the 
federal  I'licl  Administrati.  n  re:i.icted  the  animiiit  .if  coal  whidi 
could  i)e  used  by  breweries,  .is  nonesseiuial  itiiliistries.  This 
was  in  strikin;^  contrast  with  the  attitiule  of  the  fuel  adminis- 
tration of  several  f)f  the  States,  who  took  the  absurd  iiosilion 
that  there  w^re  no  nonessential  industries,  and  refused  to  cut 
tlown  tlie  coal  supply  of  breweries  eien  when  munition  fac- 
tories and  other  industrial  establishments  engaged  in  making 
war  naterials  were  liandicapped  through  lack  of  coal.  The 
Officii'l  Ihdlctin  for  January  9,  1918,  published  the  following 
significant  statement: 

One  of  the  striking  instances  of  curtailment  is  in  the  brewing  industry. 
Representatives  of  the  American  lirewers'  -Association  and  others  affiliated 
with  the  industry  came  to  Washington  last  week  and  after  a  conference  with 
the  I'uel  .Administration  volunteered  a  reduction  of  700.000  tons  (of  coal) 
annually. 

Following  the  President's  proclamation  restricting  the  amount 
of  food  materials  which  might  be  used  in  the  manufacture 
of  malt  licjuor,  the  Food  Administration  issued  an  order 
forbidding  all  purchase  of  grain  for  malting  until  rules  could  be 
formulated  for  carrying  out  the  purposes  of  the  proclamation, 
'.'he  Official  Bulletin  for  February  16,  1918,  contains  the  fol- 
lowing: 

In  order  to  insure  a  greater  supply  of  cereals  which  may  be  substituted 
for  wheat  the  Unitea  States  Food  Administration  has  sent  the  following 
telegram  to  all  maltsters  throughout  the  rt.untry : 

"Vou  are  directed,  until  rules  governing  mal'sters  are  issu<;d,  to  cease 
all  purchases  of  barley  and  other  grains  for  r-.iUing." 

It  is  estimated  that  the  mallsttrs  now  ..ave  -in  hand  a  sufficient  supply 
of  barley  and  other  grains  to  last  from  three  to  six  months. 


\72         r.OVEKNMEM     tONTROL   OF    THE    LIQUOR    IIL'SINF.SS 

Later  it  was  ruled  that  tlie  restrictidn  of  the  use  of  jjrain 
for  niahinj,'  purixist.  applied  to  near  beer  and  temperance  drinks 
as  well  as  tn  beer  nl  full  alcoholic  strenf,'th;  though,  of  course, 
the  rule  relating  to  the  reduction  of  the  alcoholic  content  of 
beer  could  have  no  jjearing  on  drinks  which  either  contain  no 
alcohol,  or  less  than  2.75  per  cent.  The  Official  Bulletin  for 
March  1.  1<)18,  says: 

Near  heer  and  temperance  drinks  which  fall  within  the  desiRnation  of 
malt  li(|uor  will  not  profit  from  th"  I'resident's  recent  proclamation,  which 
limited  lircwers  of  beer  to  7<>  per  cent  of  the  amounts  of  grains  and  other 
food  materials  that  were  used  last  year. 

The  I'ood  .Administration  rules  that  the  proclamation  applies  the  same 
limitation  to  so-called  temperance  lieers,  as  well  as  beers  and  ales.  These 
prohibition  beverages  naturally  arc  n.>t  affected  by  the  limitation  of  alcoholic 
content,  but  they  are  affected  by  the  limitation  of  the  amounts  of  grain  and 
foodstuffs  which  may  be  used  'n  their  manufacture. 


On  March  9,  1018.  the  Food  Administration  having;  promul- 
gated rules  for  carrying  out  the  terms  of  the  President's  procla- 
mation, again  gave  pirnii>sion  to  purchase  grain  for  malting 
purp^s.s.  The  Official  Bulletin  for  that  date  publishes  the 
following: 

The  lood  .Administration  authorizes  the  following  statement: 

The  I'nitcil  States  I  onil  .Administratio-  has  promulgated  special  rules 
limiting  the  m.-inutacture.  storage,  and  <listribution  of  malt,  devised  to  re- 
strict the  manufacture  of  malt  to  the  minimum  absolutely  required  for  legiti- 
mate purposes  until  the  new  grain  crop  is  available.  This  is  in  line  with  the 
President's  recent  proclamation  limiting  the  amount  of  grain  which  can  be 
used  by  brewers  to  70  per  cent  of  last  year's  consumption. 

The  b'ood  .Xdministrati m's  order  of  b'ebruary.  tem|Kirarily  stopping  alto- 
gether the  purchase  of  barley  and  other  grains  by  maltsters,  is  now  abro- 
gated, since  it  was  to  remain  in  effect  only  until  these  general  rules  were 
issued. 

I'.y  the  new  rules  maltsters  are  forbidden  to  malt  more  than  70  per  cent 
of  tlie  amounts  of  grains  used  by  them  for  the  corresponding  six  months 
periods  last  year.  Malt  used  last  year  in  the  manufacture  of  yeas;,  malt 
extract,  malt  flour,  or  vinegar,  is  not  to  be  counted  in  calculating  the  amounts 
to  be  permi  ted  this  year. 

Maltsters  are  forbidden  to  carry  over  the  summer  any  of  this  year's 
grains  and  to  malt  any  of  it  after  July  1. 

They  are  forbidden  to  have  in  hand  or  under  control  at  .iny  time  more 
grain  and  malt  and  grain  being  malted  than  the  equivalent  of  120  days'  out- 


THE    UMTKI)    STATES 


173 


put.  and  can  not  have  more  than  a  bO  ila>s  supply  ot  immallcd  Rraiii  on  liaml 
at  any  time. 

Contracts  are  forliidden  involving  delivery  latrr  than  I.  '  days  after- 
ward, except  in  the  case  of  contracts  with  the  Government  ..f  the  I'nilcd 
States  or  that  of  any  of  the  Allies.  This  rule,  however,  does  not  invalidate 
any  coiitract  made  licforc  I'chruary  15,  I'JIS. 

Maltsicrs  are  further  forhidden  to  sell  malt  to  any  persons  except  brew- 
ers li'-ensed  hy  the  Commissioner  of  Internal  Revenue,  or  registered  distil- 
lers, or  yeast  manufacturers,  or  manufacturers  of  malt  flour  or  malt  extract, 
or  manufacturers  of  vinegar,  except  hy  special  written  permission  of  the 
Food  .Administration.  They  are  forbidden  to  deliver  malt  in  excess  of  the 
purchaser's  rcquirtments  for  the  next  60  days,  and  between  May  1  and 
.■\u«ust  LS  the  anujunt  delivered  shall  not  exceed  the  purchaser's  require- 
ments up  to  October  15. 

brokerage  on  sales  of  malt  either  by  the  maltster  or  through  a  broker, 
agent,  salesman,  or  any  representative  is  limited  to  J  cents  a  bushel,  and  no 
sales  are  permissible  except  by  signed  contract 

The  purpose  of  the  limitation  of  the  use  of  grains  by  brewers  to  "0  per 
cent  of  the  amounts  they  used  las'  year  and  of  these  regulations  (.f  malt- 
sters, which  arc  in  accord  with  those  limitations,  is  to  insure  a  greater  supply 
of  cereals  which  may  be  substituted  for  wheat. 

Various  ifforts  were  made  fnim  time  to  time  to  get  Con- 
gress to  act  in  the  matter  and  proliiliit  the  use  of  iood  inaterials 
in  tile  production  of  all  alcoholic  beverages,  as  it  had  already 
done  in  the  case  of  distilled  spirits.  One  of  the  most  significant 
of  these  was  a  provision  attaciied  as  a  rider  to  the  Food  Pro- 
duction Act  for  1'>1').  This  act  was  introduced  as  H.  R.  11945 
and  is  entitled:  An  Act  to  Enahle  the  Secretary  of  Agriculture 
to  Carry  Out.  during  the  h'iscal  Year  Ending  June  30,  1919, 
the  Purposes  of  the  Act  Entitled  "An  Act  to  Provide  Further 
for  the  National  Security  and  Defense  hy  Stimulating  y\gricul- 
t.-;  and  Facilitating  the  Distribution  of  Agricultural  Products." 
It  authorizes  the  appropriation  for  the  use  of  the  Department 
of  Agriculture  of  various  sums  for  various  purposes,  among 
others  the  increasing  of  food  production  and  elimination  of 
waste.    The  part  relating  to  this  subject  reads  as  follows: 

Fourth.  For  increasing  food  production  and  eliminating  waste  and  pro- 
moting conservation  of  food  by  educational  and  demonstrational  methods, 
through  county,  district,  and  urban  agents  and  others;  for  the  following 
staled  purposes  and  in  amounts  as  follows:  General  administration  of  ex- 
tension work.  $35.1/00;  home  economics  work,  $25,000;  extension  work  in  the 


174 


(,()\  i:i<.\Mi:\  I    <  oNTKoi.  OK  TUF.   i.iyroK   imsinkss 


^1. 


•* 


i     - 

Vi 


nurtlu-rn  ami  wcstrrn  State-;,  $l.i4..'l)0;  cciunty  atjiMit  work,  SI.**''-'.''*'";  I)<iy<i' 
ami  KirK'  .  hih  wrk.  $,iK.','AM);  li,,mi'  rlciiMiistrati. m  w.irk.  $l..L7,4(lll;  exli'ii- 
Moii  wiirk  Ml  the  siiiitlierii  Statei,  $')l),(XK(;  omiity  .iKi-iit  work,  J>l,.U.VSli ; 
ln.>s'  >liili  «..rl<.  $;"5,.illll;  hoinr  cU-monstration  work,  $«(),!, .!K5;  in  all,  $<),liHI,i«M. 
.V.)  ftirt  ,tf  this  itfprof'riatiitn  sluill  hr  dziiiUihlr  fot  ;iiy  /"nr/'ii.t,-  iiir/.-.v.t 
liure  shall  hit:  ,■  ItfiH  fri'!  imisly  issui  J  Ih,-  ['riuhimalMin  authitn-nt  hy  .SV,  - 
tii<n  fifli\n  of  III,-  (ii  (  itf  ,lu:;usl  ti'nih,  miidiu-n  and  .rrfcndvii,  rnlill,  d  '  .In 
Ui  /  to  (•rxi'idc  further  for  the  national  Sicurily  and  tlcfcnse  by  slimulalimi 
a'iriiullurr  and  fatililatinii  thr  distrihution  of  a<iriiullural  products."  such 
froclamalion  hcinii  the  prohilntion  of  the  use  of  foods,  fruits,  food  materials, 
or  feeds  in  the  froduclion  of  mall  or  vinous  liijuors  far  beverage  furfioses.^ 
I  Italics  author's  ] 

niscussi<in  over  tliis  proviso  raRi'd  fiercely,  tlioitt,'h  tlie  njipo- 
sitidii  of  tlic  Administration  tendid  to  tlirow  cold  water  ii]miii  it. 
Tlic  fear  seemed  I'l  lie  that  it  would  interfere  too  drastieallv 
with  the  lialiits  (jf  lar^'e  inimhers  of  ]H'o])le.  It  was  also  iirjjed 
that,  under  the  rule  rediicinj,'  the  alcoholic  content  of  luer  to 
2.75  peT  cent,  the  evil  of  drunkenness  would  he  fjreatly  reduced, 
and  that  some  saving,'  nf  fc">d  inateri;ds  liad  alread\'  heeii  effected 
liy  the  rule  limitin.t;  the  hrewers  to  70  ]H.'r  cent  of  the  fn. >d 
materials  formerlv  used  up  in  the  manufacture  of  their  ))riMluct. 
Oil  the  iither  hand,  it  was  ari;ued  that  wiiile  unddihtedlv  Imtli 
rules  were  ^'imkI  mi  f.ir  a-;  they  went,  they  did  not  ^'o  f;ir  ennutjh. 
Why,  it  w.is  asked,  should  we  waste  any  foo<l  in  the  prnductimi 
I'f  ;i  nonessential,  and  win-  slmuld  we  allow  ;ui  intoxicalini; 
bcvera),'e  to  he  manufactured  at  all,  e\  en  thouf,di  ii  is  less  stronj; 
and  less  intii.xicitin.i,'  th.in  that  which  was  previously  maiui- 
factiired?      The  i|uesti<>n  is  hard  to  answer. 

X'arious  sulistitiites  for  the  a1)ove  ;iiuendmcnt  were  offered, 
hut  tin.iUy  a  vote  w.is  obtained  on  November  18,  1918,  upon  th- 
folltiwino.  which  has  come  to  be  known  as  the  War  Time  I'ro- 
jiibitinn  Hill: 

He  it  t-nactfil  that  after  June  30.  1919,  nniil  the  conclusion  of  the  present 
war.  and  thereafter  until  the  termination  of  demohilization.  che  date  of  wliich 
shall  he  detirmined  and  proclaimed  liy  the  President  of  the  United  States. 
for  the  purpose  of  conserving  the  man-power  of  the  nation,  and  to  increase 
etficitiicy  in  the  production  of  ari,is.  munitions,  ships,   food  and  clothing   for 

'  From  Hearings  Bcfi^re  the  Committee  on  .\Briculture  and  Forestry, 
U.  S.  Senate.  Sixty-fifth  Congress,  Second  Scssi.in.  on  H    K    1194.';.  pane  4. 


THK    I  NITEI)    STATES 


175 


thi-  nrmy  and  n.iv\.  ii  shall  Ijc  iiiil.ii%  fill  to  sell  fur  lirvfrane  purposrs  any 
(|i>.tillr.l  spirits,  ami  iliiriiiK  saiil  tinu-  no  distiUeil  spirits  hi-M  in  lioiiil  shall 
Ir  ri'iiiovi-d  thcrctrom   for  hevoram'  purposes  rxccpt   for  export. 

Alter  May  I.  \9\'),  iiiilil  the  coiicliisioii  of  the  presrnt  war,  and  ihtTtaller 
iiii'il  the  termination  of  dcmohilizatiun,  the  date  of  which  shall  In-  deteriniiieil 
.ind  pr. ulauncd  li>  the  rresideiit  of  the  United  Slates,  no  mains,  cereals. 
Hint  or  other  food  products  shall  he  nscd  in  the  manufacture  or  production  of 
liciT.  wine  or  other  iiitoxicatiiiK  malt  or  vinous  liipior  for  heveranc  purposes. 

\fter  June  M).  1919,  until  the  conclusion  of  the  present  war  and  thereafter 
iiiilil  the  termination  of  dcmohilizalion.  the  date  of  which  shall  he  dcterniiiied 
and  proclaimed  hy  the  I'resident  of  the  United  .States,  no  hcer.  wine  or  other 
intoxicating  malt  or  vinous  liquor  shall  he  sold  fur  hevcranc  purposes,  except 
for  export.  The  I'ommissioiier  of  Internal  Iveveiine  is  hereby  authorized  and 
directed  to  prescril*  rules  and  regulations,  suliject  to  the  approval  of  the 
,'secretary  of  the  1  reasury.  in  regard  to  the  manufacture  and  sale  of  distilled 
liipiors  and  t'le  remmal  of  distilled  spirits  held  in  liond  after  June  .ill.  1919. 
until  this  act  shall  cease  to  operate,  for  other  than  heveraije  purpciscs;  also 
in  regard  to  the  manufacture,  sale  and  di>tnl)iition  of  wine  tor  sacramental, 
medicinal  or    ither  heverage  uses. 

After  the  apiiroval  of  this  act  no  distilled  malt,  vinous  or  other  intoxi- 
cating liciuors  shall  he  imported  into  the  United  States  during  the  continuance 
of  the  present  war  and  period  of  demohilization. 

.\iiy  person  who  violates  any  of  the  foregoing  provisions  shall  lie  punished 
hy  imprisonment  not  exceciling  one  yiar.  or  hy  tine  not  exceeding  $1,IHX),  or 
hy  iHith  such  imprisonment  and  line. 

I'rovided,  that  the  I'resident  of  the  United  States  he  and  hereliy  is  author- 
ized and  empowereil,  at  any  time  after  the  passage  of  this  act.  to  estalilish 
Zones  of  siich  si/e  as  he  may  deem  advisable  about  coal  mines,  munition  fac- 
tories, ship  building  plants  and  such  other  plants  for  war  material  as  may 
seem  to  him  to  require  such  action  whenever  in  his  opinion  the  creation  of 
such  zones  is  necessary  to  or  advisable  m  the  proper  prosecution  of  the 
war.  and  that  he  is  hereby  authorized  and  empowereil  to  prohibit  the  sale, 
manufacture  or  distribution  of  intoxicating  liquors  in  such  zo'ies.  and  that 
any  violation  of  the  I'resident's  regulations  in  this  regard  shall  ';e  punished 
by  imprisonment  for  not  more  than  one  year,  or  hy  a  fine  of  not  more  than 
$1.0(X),  or  by  both  such  fine  and  imprisonment. 

Provided  further,  that  nothing  in  this  ad  shall  be  construed  to  interfere 
with  the  power  conferred  upon  the  Presidei  t  by  Section  15,  of  the  food 
control  act,  approved  .August   ID,  1917, 

This  act  received  the  President's  signature  on  November  21, 
1918,  and  became  a  law. 


-ry^ 


x 


CHAPTER    IX 
The  Agitation  for  Permanent  Prohibition 

Fntirciy  ap.irt  fruni  tlio  nicasiire*;  fur  tlic  elimination  of 
driinkenni'ss  in  the  arni\-  ami  navy,  and  tlic  conscrvati<in  of  fond 
niatfrials,  the  <|iie^ti()!i  of  nationwide  prohiljition  as  a  nKirai 
issue  Continued  to  be  ajjitated.  This  a>,'itation  liad  been  Krowinj; 
in  strenjjth  for  several  years  l)efore  tlie  war,  but  it  tool*  on  a 
new  empiiasis  as  soon  as  war  was  declared. 

Sliortiy  before  tlie  dedaralinn  of  war,  a  very  sipnificant  act 
had  iieen  [lassed  for  the  i)rntection  of  dry  territory.  This  act, 
dated  March  3,  1917,  e.xchided  from  tiie  mails  all  journals 
carrying  advertisements  of  li(|iiiir  intu  dry  territory. 

The  Official  Hiillctin  for  June  2,  1917,  publishes  the  follow- 
ing rejjardinR  this  law,  and  the  rulinj,'  of  the  Post  Office  De- 
partmert  regarding  it: 

The  Post  Office  Uepartment  Ikis  issiie<l  a  bulletin  showing  the  States  in 
whole  or  in  part  to  which  it  is  unlawful,  on  and  after  July  1  next,  to  address 
mail  matter  containing  cither  advertisements  or  solicitations  for  orders  for 
intoxicating  li(|Uors. 

The  liulletin  is  issue'!  under  Section  5  of  the  act  of  Congress  approved 
March  i.  1917.  which  provides  "that  no  letter,  postal  card,  circular,  news- 
paper, pamphlet,  or  piililication  of  any  kind"  containing  either  advertisements 
or  solicitations  for  such  orders  "sliall  he  deposited  in  or  carried  hy  the  mails 
of  the  United  States,  or  l>c  delivered  hy  any  postmaster  or  letter  carrier" 
when  addre^  cd  to  "any  place  or  point  in  any  State  or  Territory"  in  which 
it  is  hy  the  local  law  forliidden  to  advertise  or  to  solicit  orders  for  liquor. 

The  department  construes  the  act  as  harring  from  the  mails  matter  of 
the  character  described  when  addressed  to  States  or  political  subdivisions 
thereof  in  which  it  is  forbidden  either  to  advertise  or  to  solicit  orders. 

The  issuance  of  the  preliminary  bulletin  was  decided  upon  in  view  of 
the  large  number  of  requests  by  newspapers  and  publishers  throughout  the 
country  who  are  clamoring  for  information  as  to  the  territory  fr^m  which 
the  prohibited  advertisements  and  solicitations  will  be  barred. 

176 


:  r' 


TME    I'NITED    STATES 


177 


Tlif  bullctm  follcws: 


LiyrnR  IUu.f.tin,  No.  1 

May  U.  1017. 

?fctior.  5  of  the  act  of  Congrcus  appmvci!   N!ar;-h  .1,   1917.  ctTcctive  July 

1.  1917,  is  a«  folliiws:  "That  nn  Irltfr  iiiistal  rard.  circular,  new-paiKT,  pam- 
phlet, or  piil)licatiiiii  of  any  kind  ccmtainintj  any  aiUcrtiscment  of  spiritumis, 
\inoiis.  maltrd,  fermented,  or  other  intoxicaliiiK  liijnors  cf  any  kind,  or  con- 
lainniK  a  .siilmt.ition  of  an  order  or  order^  for  said  li()ii"rv.  cir  any  (if  them, 
shall  he  dep<isitcd  in  or  carried  hy  the  maiK  of  the  I'nilcd  .States,  or  he 
delivered  by  any  postmaster  or  letter  carrier,  when  addressed  or  directed  to 
any  person,  firm,  corporation,  or  assivciatioii,  or  other  adilressee,  at  any  place 
or  pomt  in  any  Slate  or  Territory  of  the  L'niteil  States  at  which  it  is  by 
the  law  in  force  iti  the  State  or  Territory  at  that  time  unlawful  to  advertise 
or  solicit  orders  for  such  linuors,  or  any  of  them,  resjiectively, 

"If  the  publisher  of  any  newspajwr  or  other  publication  or  the  agent  of 
such  publisher,  or  if  any  dealer  in  such  li(|Uors,  or  his  agent,  shall  know- 
ingly deposit  or  cause  to  be  deposited,  or  shall  knowingly  sen<l  or  cause  to 
be  sent,  anything  to  be  con\cyed  or  delivered  by  mail  in  violation  of  the 
provisions  ol  this  section,  or  shall  knovsingly  deliver  or  cause  to  be  delivered 
by  mail  anything  herein  forbidden  to  be  carried  by  mail,  shall  be  trned  not 
more  than  $1.(XK)  or  imprisoned  not  more  than  six  months  or  bntli ;  and  for 
any  subsequent  offense  shall  \>e  imprisoned  not  nvirc  than  one  year  .Vny 
person  violating  any  provision  of  this  section  may  be  tried  and  punished, 
either  in  the  district  in  which  the  unlawful  matter  or  publication  was  mailed 
or  to  which  it  was  carried  by  mail  for  delivery,  according  to  direction 
thereon,  or  in  wh:ch  it  was  caused  to  be  delivered  by  mail  to  the  person 
to  whom  it  was  addressed.  Whoever  shall  order,  purchase,  or  cause  into.xi- 
cating  liquors  to  be  transported  in  interstate  commerce,  except  for  scientific, 
sacramental,  medicin  ',  and  mechanical  purp!)ses,  into  any  -State  or  Territory 
the  laws  of  which  State  or  Territory  prohibit  the  manufacture  or  sale 
therein  of  intoxicating  liquors  for  beverage  purposes  shall  be  punished  as 
aforesaid;  l'r,n-id.'d.  That  nothing  herein  shall  authorize  the  shipment  of 
liquor  into  any  State  contrary  to  the  laws  of  such  State;  I'randi'd  further, 
That  the  Postmaster  General  is  hereby  authorize<l  and  directed  to  make 
public  from  time  to  time  in  suitable  bulletins  or  public  notices  the  names  of 
States  in  which  it  is  unlawful  to  advertise  or  solicit  orders  for  such  li(iuors." 

Later,  on  June  30,  it  puljlislicd  tlie  following: 

The  Post  Office  Department  today  (June  27)  issued  Liquor  Bulletin,  No. 

2.  a  J4-page  booklet  showing  the  territory  to  which  it  will  be  unlawful,  on 
and  after  July  1,  next,  ...  to  transmit  through  the  mails  matter  con- 
taining advertisements  or  solicitations  for  orders  for  intoxicating  li<iuor.    .    .    . 

Twenty-three  States  are  wholly  affected  by  the  act,  and  matter  contain- 
ing either  advertisements  or  solicitations  for  orders  for  intoxicating  liquor 
will  be  unmailK.ble    .    .    .    when  addressed  to  any  uf  the  following:  .\labama 


MICROCOPY    RESOLUTION    TEST    CHART 

ANSI  ond  ISO  TEST  CHART  No    2 


1-25  WWWA 


1.8 


1.6 


^     APPLIED  irvVIGE     Ir 


-^ocnester.    N««    yark  U609        JSA 

('16}  *H2  -  0300  -  Phone 


178  C.OVKKN.MKNT    CONTROL    OK    TMli    LiyroU    BUSINESS 


Arizona,  Arkansas.  Colorado,  Georgia,  Idalio,  Iowa,  Kansas,  Maine,  Missis- 
sippi. Nebraska,  North  Carolina.  North  Dakota.  Oklalijma,  Oregon,  Rhode 
Island,  South  Carolina,  South  Dakota,  Tennessee,  \ermont,  \'irginia,  Wash- 
ington, and  West  N'irginia. 

The  following  .States  are  partially  affected  hy  the  act  ....  California, 
Connecticut,  Delaware,  Louisiana,  Maryland,  Massachusetts,  Minnesota,  New 
Hampshire,  New  York,  Ohio,  and  Texas. 

The  following  are  affected  by  the  federal  act  at  future  dates,  as  follows: 
Alaska,  January  1,  1918;  Indiana,  .April  3.  1918;  Michigan,  April  30.  1918; 
Montana.  December  31,  1918,  and  Utali,  .August  1,  1917. 

The  following  are  not  affected  by  the  federal  act:  District  of  Columbia, 
Florida,  Guam,  Hawaii,  Illinois,  Wisconsin,  Kentucky,  Porto  Rico,  Missouri, 
Nevada.  New   Jersey.   Pennsylvania,  and  Wyoming. 

Ethyl-alciihol  is  regarded  as  an  Mito.<cicating  liquor  within  the  meaning 
of  the  net.  but  methyl-alcohol,  wood  alcohol,  and  denatured  alcohol  are  not 
so  regarded. 


V^.i 


5te^ 


i-iii 


m 


Most  sis:nificant  of  all,  however,  was  the  proposed  prohibition 
amendment  to  the  Constitution  of  the  United  States.  This  was 
introduced  as  a  joint  resolution  in  August,  1917,  at  the  first 
session  of  the  Sixty-fifth  Congress,  and  reintroduced,  with  minor 
changes,  in  December,  at  the  second  session  of  the  same  Con- 
gress, and  rather  promptly  adopted  on  December  28,  some- 
what to  the  surprise,  probably,  of  some  of  its  supporters. 

The  following  is  a  copv: 

JOINT    RESOLUTION    PROPOSING    AN    AMENDMENT    TO    THE 
CONSTITUTION   OF   THE   UNITED   STATES 

Resolved,  By  the  Senate  and  House  of  Representatives  of  the  United 
States  of  .\merica.  in  Congress  assembled  (two-thirds  of  each  House  con- 
curring therein).  That  the  following  amendment  to  the  Constitution  be,  and 
hereby  is.  proposed  to  the  States,  to  become  valid  as  a  part  of  the  Con- 
stitution wlien  ratified  by  the  legislatures  of  the  several  States  as  provided 
by  the  Constitution: 

.Article  — 

Section  1.  .After  one  year  from  the  ratification  of  this  article  the  manu- 
facture, sale,  or  transportation  of  intoxicating  liquors  within,  the  importa- 
tion thereof  into,  or  the  exportation  thereof  from  the  United  States  and 
all  territory  subject  to  the  jurisdiction  thereof,  for  beverage  purposes,  is 
hereby  prohibited. 

Section  2.  The  Congress  and  the  several  States  shall  have  concurrent 
power  to  enforce  this  article  by  appropriate  legislation. 

Section  3    This  art'clc  shall  be  inoperative  unless  it  shall  have  been  rati- 


THK    rMTKI)    STATES 


179 


fied  as  an  amendment  to  the  Constitution  by  the  legislatures  of  the  several 
States,  as  provided  in  the  Constitution,  with  n  seven  years  from  the  date  of 
the  submission  hereof  to  the  States  by  the  Congress. 

By  February  _'5,  1919,  fnrty-five  States  iiail  ratified  the  above 
aniendnietit.  tlie  (uily  States  failin,tj;  U<  rntify  hcw^  Hlidde  Island, 
New  Jersey  and  Connecticut.  The  order  in  wliich  they  ratified 
was  as  follows: 


1. 

2. 
3. 
4. 
5. 
6. 
7. 
8. 
9. 

10. 

11. 

12. 

13. 

14. 

15. 

16. 

17. 

18. 

19. 

20. 

21. 
22 
2!?! 
24. 
2S. 
26. 
27. 
28. 
29. 
.M). 
M. 
32. 
33. 
34. 
35. 
36. 
37. 
38. 
39, 
4tX 
41. 
42. 
43. 
44. 
45. 


Mississippi    January  3, 

\'""Kiiiia    January  10. 

Kentucky    January  14. 

South  Carolina January  23. 

North  Dakota  Januar'v  2.-,, 

Maryland   I\"bruary  13. 

Montana  February  19, 

Te.xas  March  4. 

Delaware    March   18. 

South  Dakota  March  20, 

Massachusetts   April  2, 

.Arizona  Mav  24! 

Georgia  June  26. 

-Louisiana  .•\ugust  8, 

Florida  November  27. 

Michigan    January  2. 

Ohio   January  7, 

Oklahoma    January   7, 

Maine    "lanupr'v  8 

Idaho  January  8. 

West    X'irgiiiia    lanuarv  9, 

Washinxton   January  13. 

Tennessee    lanuarv  13. 

Call  fornia    lanuarv   13. 

Ii'liaiia   January  14, 

.Arkansas    January  14. 

"•in»is    January  14, 

North  Carolina  January  14. 

I^ansas    Januar'v  14, 

Alabama   January  14, 

I"»  a    Januar'v  15. 

Colorado   lanuarv  15. 

Oregon    January  IS. 

New   Hampshire   January  15. 

I'tah    lanuar'y  15. 

Nebraska   Tanuary  16, 

Missouri   January  16. 

Wyoming  Tanuary  16. 

Wisconsin    Tanuary  17. 

Minnesota    Tanuai-v  17. 

New  Mexico  January  20 

N<^vada    Tanuary  21, 

^  crmont    Tanuary  29, 

New  York   lanuarv  29, 

Pennsylyania    February  25 


1918 

1918 

1918 

1918 

1918 

1918 

1918 

1918 

1918 

1918 

1918 

1918 

1918 

1918 

1918 

1919 

1919 

1919 

1919 

1919 

1919 

1919 

1919 

1919 

1919 

1919 

1919 

1919 

1919 

1919 

1919 

1919 

1919 

1919 

1919 

1919 

1919 

1919 

1919 

1919 

1919 

1919 

1919 

1919 

1919 


180 


(HAEHNMENT    t  ONTROL    OF    THE    LKJl  OK    1!LS1M;S.S 


It  is  (limhtfiil  it  its  niosi  optimistic  sui)[)ortL'rs  expected  sucli 
an  overwlieliiiin},'  victory.  X'arious  efforts  are  being  niaiie  to 
nullify  the  amendment,  or  to  make  it  inoperative.  To  what  e.\- 
tent  these  efforts  will  succeed  remains  to  be  seen. 

State  prohibition  is  n(jt  definitely  connected  with  li(|uor  con- 
trol in  war  time,  nevertheless  it  is  significant  that  more  than 
three-fourths  of  the  States  that  adopted  prohiljition  as  a  State 
law  ilid  so  after  the  European  war  began,  an<l  nearly  half  of 
them  adopted  it  after  we  entered  the  war.  It  seems  likely  tj-.at 
the  war  had  accelerateil  the  movement.  The  following  is  a  list 
of  the  States  that  have  adopted  prohibition  as  a  State  law,  with, 
the  dates  of  its  going  into  effect: 

Maine   ( Constitutional )    1851 

Kansas   ( Constitutional )    1880 

North    Dakota    (Constitutional)    1880 

Oklalioma  (Constitutional)   1907 

Cicurpia    (.Statutory)    IQOg 

North  Carolina  (Statutory) 1909 

Mississippi    (.Statutory)    1909 

Tennessee  (Statutory)    1909 

West    \  irfiinia    (Constitutional)    1914 

.Alaliaina    (Statutory)    1915 

Arizona    (Constitiitiotial)     1915 

\irKinia    ( Statutory  )    1916 

Colorado    (Constitutional)    1916 

Oreson    (Constitutiimal)    1916 

Washini^'ton    (  Statutory)    1916 

.Arkansas    (Statutory)    1916 

Iowa    (Statutory)     ." 1916 

Idaho    (Constitutional)    1916 

South    (Tarolina    (  Statutory  >     1916 

Nebraska   (Constitutional)    1917 

South  Dakota   (Constitutional)    1917 

District  of  Columbia  (Statutory  i   1917 

Alaska    (Statutory  )    1918 

Indiana    (Statutory)    1918 

Michigan    (Constitutional)    1918 

New  Hampshire  (Statutory)    1918 

Montana    (Constitutional )     1918 

New   Mexico    (Constitutional)    1918 

Texas    (Statutory)    1918 

Florida   (Constitutional )    1919 

I'tali    (Constitutional)    1919 

Ohio    (Coi'stitutional)    1019 

Nevada    (Statutory)    1919 

Wyoming   (Constitutional)    1920 

Delaware    (Statutory)    1920 


X': 


CHAPTER    X 

Conclusion 

As  to  the  results  of  the  measures  thus  far  taken,  there  is 
very  little  to  he  said.     The  author  has  found  no  difference  of 
opinion  as  to  the  wisdom  and  effectiveness  of  the  rules  for  the 
prevention  of  drunkenness  among  the  men  in  uniform.     Never 
in  the  history  of  the  world,  probably,  has  there  been  the  spectacle 
presented  by  our  military  training  camps  and  cantonments,  our 
navy  yards,   radio  schools,  and  naval  training  stations.     The 
common  expectation  is,  and  always  has  been,  that  the  gathering 
together  of  vast  numbers  of  young  men,  in  the  most  volcanic 
period  of  their  lives,  under  highly  abnormal  conditions,   will 
produce   a  great   deal   of   drunkenness  and   general    turbulence 
immediately  outside  the  areas  within  which  severe  discipline  is 
enforced.     In  the  present  case,  however,  this  expectation  not 
only  has  not  been  realized,  but  the  reverse  has  been  true.    There 
IS  probably  no  city  or  town  in  the  country  containing  a  civilian 
population  as  large  as  the  military  population  of  any  of  our 
cantonments,  which  does  not  show  more  drunkenness  and  tur- 
bulence than  can  be  found  in  the  neighborhood  of  these  canton- 
ments.    If  we  compare  the  general  orderliness  and  behavior  of 
these  young  men  in  uniform  with  that  of  the  young  men  of  our 
colleges  and  universities  in  peace  time,  the  contrast  in  favor  of 
the  men  in  unit  ,rm  is  most  glaring.    The  universal  testimony  is 
that  there  is  less  drunkenness,  rowdyism  and  general  turbulence 
among  our  soldiers  and  sailors  ihan  among  college  men  who  are 
not  similarly  protected  from  the  evil  of  drink. 

This  has  not  been  the  case  in  any  previous  war.  except  in 
isolated  cases  where  a  commanding  officer  has,  on  his  own  ini- 
tiative, protected  his  men  from  drink.  There  is  no  evidence  to 
show  that  the  volcanic  nature  of  our  young  men  lias  calmed 
down,  or  that  lawlessness,  rowdyism  and  turbulence  have  dimin- 

181 


18: 


f;()\F.KN'MKN  r    (OXTKOI.    OF    T  H  K    LIlJlOK    lilSlNKSS 


J   ^ 


y. 


i>lKtl  in  ilu'  ^I'f^lUot  (K},'rcf  ii\  <iur  f;ciuT;il  jiiipiilatidii.  The  only 
f\|)I;m;ilii'ii  i>f  tlu'  riri.irkahli-  ;<(il)ri(.'ty  of  our  soldiers  ami  sailors 
i>  that  it  is  due  ti>  the  fact  that  lliey  are  safejjuarded  aj^ainst 
drink. 

No  such  improvement,  however,  is  yet  visihle  anionjj  our 
civilian  population.  The  prohlem  here  is  complicated  hy  a  nuni- 
her  of  unusual  conditions.  The  {.r^therin;^  tofjether  of  consid- 
erahle  numbers  of  men  in  the  neijj;hhorhood  of  shipyards,  mu- 
nition plants  and  centers  for  the  manufacture  of  other  war 
supplies,  most  of  whom  are  not  under  discipline,  the  fact  that 
most  of  these  men  are  receiving;  hi^dier  washes  than  they  ever 
received  before.  iui},'ht  he  exiiccted  U>  increase  drunkenness  some- 
what. This  expectation  lias  been  realized  except  where  the  men 
have  been  safeguarded  by  local  rules  and  regulations  against 
drink. 

As  to  the  conservation  of  food  materials,  the  results  are 
rather  definite.  The  prohibition  of  the  maiuifacture  of  distilled 
spirits  for  beverage  purposes  put  a  stop  to  all  wastage  of  food 
materials  for  tliat  jnirpose.  How  great  that  saving  was  can 
only  be  estimated  on  the  basis  of  the  table  on  Jiage  167  (Part  II, 
Chapter  \TII).  Something  over  3').0(XI.000  busiiels  of  grain 
and  15J.000.000  gallons  of  molasses  had  been  used  in  the  year 
ended  June  30,  1*'16.  This  does  not  show  how  much  of  this 
was  for  beverage  purposes.  Aside  from  inolasses,  the  principal 
item  is  corn,  with  barley  and  rye  as  the  only  minor  grains  used 
in  quantities  Wf)rth  mentioning. 

The  proclamation  of  the  President  reducing  the  amount  of 
fotnl  material  which  could  be  used  in  brewing  to  70  per  cent 
of  the  prewar  figure,  is  a  little  more  definite.  On  the  basis  of 
the  figures  for  1916,  this  woidd  effect  a  saving  of  20,631,957 
bushels  of  grain  and  over  30.000.000  pounds  of  other  materials, 
mainly  grape  sugar  and  glucose.  This  calculation  is  a  mere 
matter  of  arithmetic  and  neeils  no  discussion. 

As  to  the  comparative  merits  of  the  Knglish  and  the  Amer- 
ican methfids  of  dealing  with  the  question  of  drunkenness  among 
civilians  in   war  time — that   is,   with  the  dispensary  system  as 


H 


TIIK    r.Mri;|)    STATKS 


183 


conipaml  wuh  pn.hihiti<M,-it  is  tn„  .arlv  t..  pronm.nco  jiul^- 
ment  on  flu-  basis  ,.f  rfcurclul  fact.  Tlie  case-  seems  reasonal.lv 
clear  so  far  as  the  military  and  naval  forces  are  conccrru.i 
The  prompt  an.l  decisive  manner  in  vvliich  Congress  and  the 
higher  adnnnistrative  <.fficials  dealt  with  that  question  compared 
with  tlie  tentative  and  half-hearted  way  in  which  the  Ilnjjlish 
govermnent  acted,  leaves  no  room  for  doubt.  Tiie  effects  of 
proh.i,iti..n  of  sale  to  the  American  troops  is  bevond  all  com- 
parison superior  to  those  mild  restrictions  up,.n  dnnkini^  bv  the 
British  troops. 

JudKinjr  by  the  discussions,  the  dispen.sary  .sy.stem  in  Enf,dand 
was  nf.t   wholly  a  temperance  measure.      One  very  large  and 
influential  group  of  English  politicians  is  less  interested  in  tem- 
I.erance  and  sobriety  than   they  are   in   government   enterprise 
and  ownership.     To  get  the  g.nernment  to  take  oyer  the  manu- 
facture and  dispensing  of  drink  is  to  them  a  distinct  gain,  what- 
ever Its  efTect  upon  drunkenness  or  food  conserration      On  the 
other  hand,   the   food   s-hortage  in   Englanil  necessitated  more 
drastic  action  in  the  direction  of  food  conservation  than  we  have 
had  forced  upon  us.     Both  countries  have  prohibited  the  manu- 
facture of  distilled  spirits  for  beverage  purposes.     Whereas  we 
have  reduced  by  30  per  cent  the  amount  of  food  materials  which 
may  be  used  in  the  manufacture  of  malt  litiuors,  England  ^-^s 
reducecl  it  by  66  per  cent.     This  stoppage  of  the  distillation  of 
distilled    spirits   m   Englaml,   and   the   drastic   reduction   in   the 
production  of  beer,  might  have  been  exjK-cted  to  reduce  drunk- 
enness considerably  even  without  the  efforts  of  the  Central  Con- 
trol Board  (Liquor  Traffic).     One  is  therefore  scarcely  justified 
in  attributing  to.  the  dispensary  system  all  the  credit  for  the 
reduction  in  the  amount  of  drunkenness. 

With  us,  until  nationwide  prohibition  is  put  into  effect  or 
something  else  is  substituted  for  it,  we  shall  have  made'  no 
serious  attempt  to  control  drunkenness  among  our  civilian  popu- 
lation beyond  what  was  done  before  we  entered  upon  the  war 
Iherefore,  we  have  nothing  very  definite  to  discuss  in  the  way 
ot  results. 


^.:i 


■  -  -«^  -- 


V: 


REFERENCES 

OFFICIAL   REPORTS,   ETC. 

Reports  of  the  Central  Control  Board  (Liquor  Traffic). 

First  Report.     London,  1915. 

Second  Report.     London,  1916. 

Third  Report.     London,  1916 
Licensing  Statistics    1916.    Statistics  as  to  the  Operafon  and  Adm.n.stration 

of   the  Laws   Relating  to  the   Sale  of   Intoxicating  Liquor   ,n   England 

and  Wales  for  the  Year  1916. 
Intoxicating  Liquors  (Restrictions  in  Foreign  Countries  during  the  War) 

London,  191S. 
Report  of  the  Advi  ory  Committee  on  Proposals  for  the  State  Purchase  of 

the  Licensed  Liquor  Trade.    Liquor  Trade  Finance  Comn»ttee  of  Eng- 
land .ind  Wales.    London,  1916. 
Manuals  of  Emergency  Legislation  (England). 

Defense  of  the  Realm  Manual. 

Food  Controller's  Orders. 

Supplements. 
Commission  of  Inquiry  into  Industrial  Unrest.     (England.)     Report  of  the 

Commissioners  for  the  Northeastern  Area;  Northwestern  Area;  London 

and  Southeastern  Area;  West  Midlands  Area;  Yorkshire  and  East  Mid- 
p  /^"^':  ^°«''*"'""  Area;  Wales,  including  Monmouthshire;  Scotland 
Uy  i-ord  D  Abernon  : 

Public  Health  and  the  Control  of  the  Liquor  Traffic. 

Public  Health  and  Alcoholism  among  Women. 

Some  Aspects  of  the  Drink  Problem. 

Preface  to  '-Alcohol:  Its  Action  on  the  Human  Organism,"  prepared  by 
Advisory  Committee  of  Central  Control  Board  (Liquor  Traffic).  Lon- 
don, 1918.     H.  M.'s  Stationery  Office. 


BOOKS 
Banks,  L  A. 

Ammunition    for    Final 
Wagnalls  Company. 
Beman,  L.  T.,  Comp. 

Selected  Articles  on  Prohibition  of  the  Liquor  Traffic 
11.  W.  Wilson. 
Carter,  Henry, 

Europe's  Revolt  against  Alcohol.    London,  1915.    C   H    Kelley 
The  Control  of  the  Drink  Trade.    I^ndon,  19ia    Longmans,  Green  &  Co 

186 


Drive   on    Booze.    New   York,    1917.    Funk   & 


New  York,  1917. 


i 


lH(i         (,()\KI<NMKNr    l()MK(JL    UK    TlIK    LiyUOK    BUSINESS 

liiiDl.  Jean. 

L'Unloii  Sacree  ciintre  L'Alcoolisme.     Paris. 
risk,   Kiixene  1. 

AUdIhiI,  Its   Uelaticin  to   Human   Kfficiency  and  Longevity.     New  York. 
1^17.     I'unk  Si  Wagnall-s  Cumpaiiy. 
I  lordon.  F.rncst. 

KusMan  i'rohihition.     Ohio.  l')16.  Tlie  .Xmerican  Issue  PuWishinK  Com- 
pany. 
Johnson.  Wilham  E. 

The  Liijuor  Problem  in  Russia.     Ohio,  1915.     The  American  Issue  Com- 
pany. 
Ki-lynack.  T.  N. 

Thi   Drink  ProliUm  of  Today.     Now  York,  1916.    I".  P.  Dutton  &  Co. 
Koren,  John. 

.Mcohol  and  Society     New  York.  lOK..     H.  Holt  &  Co. 
Maurevert,  Georges 

L'.Mcool  contre   la   IVancc.     Paris.   l'J15. 
Mee.  .Vrthur,  and  Holden,  J.  Stuart. 

Defeat  or  \ictory?     London,  1917.     MorRan  &  Scott,  Ltd. 
Murray.  Marr. 

Drink  and  the  War.    London,  1915.    Chapman  &  Hall.     New  York,  1917. 
E.  P.  Dutton  Company. 
Newton.  J. 

Alcohol  an<l  the  War;  the  Example  of  Russia.     London.     R.  J.  James. 
Richardson,  .-X.  \V. 

The  Nation  and  .\lcohol.     London,  1916.     Student  Christian  Movement. 
Samuelson,  James. 

Drink.  Past,  Present,  and  Prohable  Future,  with  Some  of  Its  Bearings 
on  the  War.     Liverpool.  1917.     Philip.  Son  and  .N'ephew.  Ltd 
Taylor,  E.  L.,  and  Jones,  T    S. 

Recent  Federal  Laws  .Aflfecting  Whiskey.     Baldwin  Law  Book,  1917. 
\idal.  Henri. 

Le  Cabaret.     Paris.  1910.     M.  Giard  &  E.  Briere. 


PAMPHLETS 

Bryan,  \V.  J. 

Prohibition.     Washmgton.  D.  C,  1916. 
Cook,  S.  A. 

Christian  Patriotism  in  Temperance  Reform.     Philadelphia,  1916.     Amer- 
ican Baptist  Publishing  Company, 
lisher,  Irving. 

War  Time  Prohibition. 
Gibon,  Feneloii. 

Le   Mai   Social   de  T.AIcoolisme    (Moyens   Pratiques   de   le   Comuattre). 
I'Vom   the   Keviie    Pratique   d'.-\pologetique.     Paris,   1917 


RKKKKKM  r:s 


187 


Iiittrnational   Proliiliilion  ronffilcratinti 

(.r.at  War  an.l  I'roh.hition,  1914  IS,     Lun.lnn.   1916      Intcrnat.„nal  Pm- 
liiliiliiiii  Otfufs. 
Maurice,  H. 

Titnpcrance  awainst   Prohibition.     New  York.  lOR,      America  Press 
Mce.  Arthur. 

The  |-i,hllers.     Westerville.  Ohio.  1QI7.     American  Issue  Company 
Ni)ril(iuist.  1'. 

Is    ProhM.ition   JuslifiaMc  -      H,Kk    Island     III,    1917.      Au^ustana    Ro,)k 
C  ompaiiy. 
Stoddard,  Cora  V. 

I'rance  and  Alcoholism  in  War    lime      Westerville.  Ohio,  1918.     Aitjer- 
ican  Issue  Comtiany. 
Taylor,  E.  H.,  Jr.,  &  Sons,  Inc 

Krom  Washington  to  V\ilson.   I 'rank  fori,  Ky .  1917 
Tnnseau,  E.  L. 

Army  E.xpericnce  with  Drink.     Weslervdie.  Ohio,  1915.     American  Issue 
Company. 
Wilson,  S, 

Compensation,    Newark.  N.  J..  1917.    Anti-Saloon  I.eaifue  ,)f  New  Jersey. 


MAGAZINE   ARTICLES 

Alexander,  C    R. 

"Will   Prohibition  Work'"     /ndi-fciid.iit.     March   19,   1917 
Amey,  Lacey. 

"England  in  Arms."    Canadian  Ma,,a:in,\     \ .  49.  1917 
Anderson,  Wm.  II. 

■■National    Prohibition— What    Form   Should   It   Take  I"'     Outlook      De- 
cember 27.  1916. 
Arnold.  E   C. 

■•ProhibitiuK   Possession  of  Liquor   for   Personal   I'se."'     American   Law 
h'i-^-iru:     .March,   1918. 
Haynes.  H. ;  Chancellor.  H.  G. 

•■.State   Purchase  of  the   Liquor   Trade."     Contemforary   Rnint:    July. 

Brown,  L.  Ames. 

••Economics  of  Prohibition."    Xorlh  American  Review.    Februarv    1916 
^  Prohibition  or  Temperance."     .\orth  American  Rerieu:    October    1916 
Prohibition's   Legislative  Efforts."     Sorlh  American   Review.     October 
1916. 

"Election  and  Prohibition."     December.   1916. 
Brunton,  Sir  Lauder. 

••.AlcMiol:   What  It  Does  to  Us  and  What  We  Ought  to  Do  with   It" 
Sincteeiilh  Century.     Julv,  191'? 
Bryan.  W .  J 

•'Prohibition's  Progress."     Indefena.nl      May  19,  1917. 


Ins  ;(j\1.K.\MKN  1     lU.NIKUl.   of    the    LIULOK    lUSlNESS 


fc-J 


u 


>.^i  % 


4 

f 


C  haiUfll.T.    II  C. 

"U  ,ir  ami  N.ilKnial   Tciii|i<ramc "     I.ii-iiuj  ./.;i'.     N'lvrmlur    11.    l'*l(). 
liaM'iiport.  l". 

"Sliall  tlic  r.rewiiit;  of  drain   Ijc    rroliilntfd  ?"     .llUiiilic  Monlhlw      luly, 

i-'i; 

I'.llis,    II 

"llriiik   l'r..nraiii  of   \Uf   liinirc"     .\,tv  Sluhsmait.     July,   V>\7. 
Kvfrhart.   K.  II 

'I'rolnliili.in.  \\  licii  and   Win"  liid,-f-i-nd.nl.     March  5,   1'I17. 
l■l^k.  K.  I.. 

"Aki'hcjl  anil  Human   I- rtiiicncv."     .Illiinlic  Monthly      I'cliriiarv,   1017. 
I'(.x.  H.   !■ 

•'TiirnMiK  Off  the  Spit;. it;  U'ei'ly  to  Mrs.    Tilton"     .Vr.ijry.     .Npnl  JI.  1917 
Graliam,  \\  linMcii. 

"Al'lir   Natinnal    Prulul.ilion,   What?"     .Vi>r(/i  .Int.ruan  h',:i,-w      April, 
1017. 
HcssrlnraNe.  C.  K. 

"Why  Our  Tnwn  Went   Dr.s."    hidifi-nd,nt.     January  Jd.   1018 
Jennings.  H.  J. 

"Xcw    Drink    Kctnlatinns "      iorlniiihlly   Review.    January,    1016. 

"Heer  and  the  Kcmiuk-."     l-i>rlniijltlly  A'.-iiVa'.     May,  1915. 
Junes,  Harry. 

"What     Lloyd    (ie  >rge    .\ccomplished    against     Licjucir"     World's    ll'i-ik. 
.VuRUst,  101. S. 
Konn.  Ji)lin. 

"Drink  Reform  in  Europt."     Atlantic  Monthly.     Decemlier,  1915. 

"Social    .Aspects   of    Drink."     Athmtic    Monthly.     January,    1016. 

"Constructi\e  Temperance  Reform."     Atlantic  Monthly.     Heliruary,  1916. 

"Gove  rnmcnt  and   prohibition."    Atlantic  Monthly.     April,   1916. 
Lathbiiry,  U.  C. 

"Drink  and  War."    Xinctccnth  Century.    \;ay,  191S. 
Morse.  F.   L.  C. 

"Prohibition."    .\alion.     July  19.  1917. 
N..ck.  A.  J. 

"Should  \Vc  I'ight  for  Prohibitioi.  '"     Century.     March,  1917. 
Piaccntini,  M. 

"Prevention  and   Repression  of  Alcoholism  in  Anglo-Saxon  Countries." 
Journiil  of  Criminal  Law.     May,  1917. 
Pickett,   D. 

"Prohibition's  Story."    Forum.    June,  1917. 
Robinson,  .\ndrew  C. 

"The  Russian  Hu<lget  and  Prohibition."    Spectator.     November  18,  1916. 
Rogers,  L. 

"War  and  Liquor  Restriction  in  the  United  States."    Contemforary  Re- 
view.    October,  1917. 


KKIKUKNCES 


189 


Rnsciitlial.  A.  L' 

"American    Mall;    I'roliibi' on    ami    Its    I'jssiljle    Effect"      /hIi  ..»!.■«<. 
April  ;,  1''17. 
SliadwcU.  A. 

"I.ii|iiiir  Ira  flu    in  War."     Sxncltfnth  Ccnlur\      r>t)ruary,  l'>17. 
SheUloii,  t".  M. 

"liiKKt>t    I'ntislf  l;liiiiilcr.  "     /mJ./'.'ih/ih/.     March  J,    I'MH. 
^herwell.  A. 

"Slate  toiitrnl  nf  tin-  I.i.iii..r  Traftu  "     Sf.-il.ir'r.     Ma>   h-27.  ni6. 
Singh,  C.  St.  N. 

"SprtM'l    i>f    rroliiliitinii    in    the    I'tiitcil    Slates."     /  i;  ih,;    .■),;,-,     June    M). 
1417. 
Stoddard,  t".  1" 

"rrolnliition."     Sun;-y.     1  )i-icnilifr  JO,   I''lf). 
Theiss,  I..  I'. 

"I'rohiliition  and  the  Trice  uf  C.al."     ()utlo„k      Julv  25,  1017. 
Tilton,  !•:. 

"Turning  OiT  ihe  Spi^ol."     .VMncv.     January  l^,  27.  IVhrii.iry  10.  24.  and 
March  1(1,  I'M/. 

"The  Drink  Problem  in  I'rance."    Surit-y.     Xovemher  J,  l'>17 

".\s  to   rrolnhitioii  "     XcK  l\\fuhlic.     Jidy  .'8,   r'17. 
\ance,  W.  J  ,  and  Woods,  R.  A. 

"National  I'rohihition."    Surtey.     I'ebruary  10,  1917. 
Whelplty.  James  1). 

"War  and  Drink;  How  Despotic  Russia  Set  Toleran.  England  a  Notable 
Example."     C  i»>/ury.     May,  1915. 
Whittaker,  Sir  Thomas  P..  M.  P. 

"Work  of  the  Central  Control   Hoard."     Cunli'm/'criiry  Ri-fu-iv.     Marcli, 
191(>. 

"The  Drink  Traile  and  State  Purchase."     C'lnlt^mforary  A'l'nVic.     June, 
1915. 

Unsigneo 

Bankers'  Maga:\nc — 

'Nalion-\\  ide  Prohibition  Coming."     January.  1918. 
Curnnt  Histcry  Magazine  of  the  .\cw  York  TinttS — 

".Mcohol  and  the  War."    January,  1918. 
Current  Ofinion — 

"Can  the  Allies  Endure  the  Strain  of  Total  .\bstinence  from  Alcohol?" 
June,  1915. 

"The  Liquor  Traffic  in  Its  Last  Line  of  Trenches."    June,  1917. 
Independent — 

"Progress  of  Prohibition."    January  29,  1917. 

"Liberty  of  Difference"     April  21.  1917. 

"War  Prohiliition  Now!"     May  26,  1917. 

■To  W  in  the  War,"     Tune  16,  1917. 


IF 

.-.■   S   ■ 


"0 


i.()\  IRXMKNT    (■(INTKUl.    OF    Till:    l.lnlOK    lUSlNKSS 


^^    ;^t 


i?:;^ 


Ai/.  'iirv  Pij/isl — 

•Eiiglanii's  Wavering  with  Drink."    May  29,  1915. 
■•.\lciih<il  ami  tlie  War."     September  4,   1915. 
"\\  ar's  War  on  Drink."    July  15.  1916. 
"Liciiiiir  I'rcss  on  the  Dry  \  ictories."     December  Ifi.  1916. 
■■France's  StriiKKle  with  .Mobi.l."     January  0,  1917. 
■'Canada  Swept  by  Proliibitiiin."    January  2U.  1917. 
"England  Drifting  Toward  P'rohibition."     February  3,  1917. 
"Drink   I.ssue  in  England."     July   14,  1917. 
"Two  Year.s'  Sobriety  in  Russia."     March  24,  1917. 
"\a(ion-\\  ;,:e  Prohibition  as  a  War  Measure."    May  26,  1917. 
■■Effects  of  War-Time  Prohibition."    July  7,  1917. 
"Drink  Issue  in  England."    July  14,  1917. 
"Drink  Problem  in  the  War."     September  29,  1917. 
"liattle  On  to  Make  America  Dry."    December  29,  1917. 
T.rewers'  Campaign  of  Righteousness."     January   12,   1918, 
■'.Xation-wide  Drought  in  Sight."     September  21,  1918. 
.Vii(ii>ii — 

■Constitutional  Prohibition."     August  9,   1917. 
.Wirth  .liiirrnan  Rcz-im< — 

"Pro,::ipition  against  Patriotism."    June,   1917. 
Oulloolc— 

"Pr(.l;ibiti-«n  in  the  United  States  and  Russia."    January  19,  1916. 

■■Canada  and  tlie  Liquor  Question.'"'     .April  12,  1910. 

"War  on  .Mcnhol."     February  2S.  1917. 

'■I.i(luor  Question  in  England."     March  7,  1917. 

".Vational  rrohtbition  in  War  Time."    June  13,  1917. 

■■Proliibition  and  the  War/'     Jui>  4,  1917. 

"Prohibition  or  War."     .Viigu^t   15.   1917:   Septcinlier  12,   1917. 

"National  Prohibition."     December  26,  1917. 
A'.:i:i'  ff  A'cxic-cs — 

■■Drink  Problem  in  Ftnglaiid."     July,  1915. 

"State  Purchase  as  a   Solution  of  England's  I.' pior   Problem"    March 
1017. 

■■European  \iews  on  Wine  and  Hcer  Drinking."     January,  1918. 

"War  against  Alcohol."    January,  1918. 
Stcclator— 

"Down  Cdasses— the  Test  Case.'     December  2.'^.  1916. 

"Opportunity  That  Will  Not  Return."    January  6,  1917. 

"Bread  or  licer."     January  20,  1917. 

"Bread  vs.  Beer."    January  27,  1917. 

"More  in  Anger  than   Fear;   in   Regard  to  the  Acts  of  the  Food  Con- 
troller."    bebruary   10,   1917. 

"The  Last  Phase"     I'ehruary  17,  1917. 

"Tragical   b  „)d  F'arce  "     February  24,  1917. 

"What  Miylit  Have  Been:  Lloyd  George's  Speech."     March  3,  1917. 

"Liquor  Problem— Wanted,  a  Compromise."    April  14,  1917. 


KKKKRENCns 

Sfcrlalnr — 

"What  Ails  the  House  of  Commons""     -^pril  21,  1917. 

"I'ood  Problem  Again."    April  28,  19' 

"Creation  of  Unrest."    July  14,  1917. 
AVv  StdliSman — 

•Drink."    April  14,  1917. 
Sun\y — 

'■-Ww  Committee  on  War  Prohibition."     May  5,  1917. 

"lucmomics  of  War  Prohibition."     May  12,  1917. 


191 


"National  Prohibition  on  the  Way."     liecember 


1917. 


CONTROVERSIAL 

Periodicals,   Mac.-\7,i.nes,  Yearbooks,   Etc. 
American — 

Aiiu-rican  Proliibition  Vcarhook.     Chicago,  111.     1917. 

Aitti-Saloon  League  Ycarl'ook.     Westerville,  Ohio.     1917. 

Proci'cdimjs  (Annual  Convention  of  the  .\nti-Saloon  League  of  Amer- 
ica).    Washington.  U.  C. 

Cyclofedia  of  remferaHcc,  Prohibitiott,  ,ti,d  Public  Morals.     I!y  Pickett 
and  Others,  Editors.    Cincinnati,  O.     1917. 

The  American  Issue.    Westerville,  Ohio, 

Amencan  Advance.    Prohibition  National  Committee.     Chicago. 

Ad/ioHj/  Prohibitionist.     \V.  P.  F.  Ferguson  Co.     New  York. 

The  Ciiion  Sitjnal.    W.  C.  T.  U.     Evanston,  111. 

Anii-Prohibition  Manual.     National  Association  of  Distillers  and  ".vhole- 
sale  Dealers.     Cincinnati,  O.     1918. 

t'.  S.  Brewers'  Association  Yearbook.     New  Ycrk. 

Bonfort's  Wine  and  Spirit  Circular.     P.  Bonfort.     New  York. 

Bonfort's  Wine  and  Spirit  Directory.     Leoser  Bros.  &  Gilmore.     1912. 

American   Wine  Press  and  Mineral   Water  Xcws.    L.  J.   Vance.     New 
York. 

Coccens"  Wine  Press.     F.  3.  Cozzens.     New  York. 

A'orth  American   Wir-  and  Spirit  Journal  Incorporating  Xew  England 
Liquor  Journal  and  Directory.     Boston. 

Pacific  Wine  and  Spirit  ReHezc     San  Francisco. 

The   Other  Side   of  Prohibition.     National    Wholesale    Liquor    Dealer-.' 
Association.    Cincinnati,   O. 

T-^'cntieth  Century  Quarterly.     International  Reform  Bureau      W  ashine- 
ton,  D.  C.  * 

Canauian — 

The  Pioneer.    Toronto,  Canada. 

The  S'Jtesman.     Winnipeg,  Manitoba. 
English — 

Alliance  Xews  and  Temperance  Reformer.    London. 

Monthly  Notes.     Published  by  Temperance  Legislation  League.    Londoa 


192  GOVERNMENT    CONTROL    OK    THE    LIQLOR    BLSINESS 

English — 

British   Ti-m[',-ranii-  Advocat,-      London. 

The  Internaliomii  Kicord^     Published  by  Guy  Hayler.     London. 
I'rench — 

LAbstincncr.     Paris 
German — 

Die  Abstincnc.    Wien. 

Die  Alkoholijegner.     Wien. 

Die  Alkoholfragc.     Berhn. 

Der  Alkohohsmus.     Leipsig. 


,  .-;*«. 


